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HomeMy WebLinkAboutRES 3729 CITY OF RENTON, WASHINGTON RESOLUTION NO. 3 7 2 9 A RESOLUTION OF THE CITY OF RENTON, WASHINGTON, RECOGNIZING THE ROLE OF THE RENTON MUNICIPAL AIRPORT AS AN ESSENTIAL PUBLIC FACILITY, AND AUTHORIZING THE ADOPTION OF THE RENTON MUNICIPAL AIRPORT COMPATIBLE LAND USE PROGRAM. WHEREAS,the City of Renton, following publication of notices for public hearings, held a public hearing before the Planning Commission on September 21, 2004, to consider adopting the objectives and policies of the Renton Municipal Airport Compatible Land Use Program; and a public hearing before the City Council on October 11, 2004, to consider adopting zoning code modifications required to implement the policies of the Renton Municipal Airport Compatible Land Use Program; and WHEREAS, there was substantial involvement of the aviation community, the Renton Airport Advisory Committee, federal, state and regional government agencies, and the general population in developing the Renton Municipal Airport Compatible Land Use Program; and WHEREAS, the Renton Municipal Airport Compatible Land Use Program meets or exceeds the requirements of RCW 35.70.547, in which General Aviation Airports in the State of Washington must discourage the siting of incompatible uses in the vicinity of the airport; NOW, THEREFORE, THE CITY COUNCIL OF THE CITY OF RENTON, WASHINGTON, DO RESOLVE AS FOLLOWS: SECTION I. The above findings are true and correct in all respects. SECTION IL The City Council of the City of Renton, Washington, hereby adopts the Renton Municipal Airport Compatible Land Use Program. 1 RESOLUTION NO. 3 7 2 9 PASSED BY THE CITY COUNCIL this 20th day of December , 2004. Bonnie I. Walton, City Clerk APPROVED BY THE MAYOR this 2 0 t h day of December , 2004. -X�4 /66&,7, GOAJW;� Kathy eolker-Wheeler,Mayor Approved as to form: r?ea4��44�� Lawrence J. Warre , ity Attorney RES.10 7 S:10/2 7/04:ma 2 CITY OF RENTON Renton Airport -- Compatible Land Use Program Report 1 } { � k Y : M i _ Y ♦ 4 Economic Development, Neighborhoods, and } - Strategic Planning .t . -. Department Renton City Hall 1055 South Grady Way Renton Washington 98055 CITY OF RENTON Renton Airport Compatible Land Use Program Report �Y ti o � o N� December 2004 r Department of Economic Development, Neighborhoods, and Strategic Planning Department Renton City Hall • 1055 South Grady Way Renton Washington 98055 a r Table of Contents I. Introduction............................................................................ 1 II. Renton Airport Background........................................................ 2 III. Boeing and the Renton Airport.................................................... 2 IV. Renton Municipal Airport and Will Rogers— Wiley Post Memorial Seaplane Base Characteristics.......... .......... 3 A. Service Capability Based on Functional Classification and Design Type............................................ 3 '. B. User type........................................................................4 C. Volume of Use................................................................. 4 D. Capacity........................................................................ 5 E. Physical Characteristics..................................................... 5 F. Airspace Characteristics.................................................... 6 V. Risk Assessment........................................................................6 A. Concept of Risk Assessment................................................6 B. Local Risk...................................................................... 7 C. Risk Potential.................................................................. 7 D. Perception of Risk............................................................8 E. Aviation Emergency Type in Relation to Risk..........................8 F. Aircraft Type and Size in Relation to Risk..............................8 G. Emergency Landing Characteristics......................................9 H. Location of Accidents.........................................................9 I. Risk to Residences and Other Buildings.................................9 J. Risk and Compatible Land Use Planning..............................10 K. Risk Assessment Conclusions.............................................11 VI. Airport Compatible Land Use Program.........................................12 A. Authority to Regulate.......................................................12 B. Program Scope...............................................................13 .. C. Planning Area................................................................14 D. Planning Process.............................................................14 E. Program Structure...........................................................15 .. F. Applicability..................................................................15 G. Exemptions....................................................................15 H. Implementation...............................................................15 VII. Airport Compatible Land Use Program Objectives and Strategies........16 A. General Aviation Safety....................................................16 B. Airspace Protection.........................................................18 .. C. Aviation Noise............. ......20 ............................................. D. Overflight.....................................................................24 VIII. Airport Compatible Land Use Program Review and Revision.............29 A. Mandatory Review Schedule..............................................29 B. Revision Procedure.........................................................29 IX. Conclusion............................................................................. 29 Exhibits A-J Resources List CITY OF RENTON Renton Municipal Airport Compatible Land Use Program I. Introduction Recognizing the importance of aviation to the economic health of the state and its businesses and the quality of life of its citizens and visitors, the Washington State Transportation Commission developed the Washington State Aviation Policy. Issues raised by this policy, such as the potential for encroachment of incompatible land uses in proximity to airports, have been further addressed, and formalized, by the Washington State Legislature. Senate Bill 6422 and the resulting implementation of the bill, RCW 36.70.547, amended the Growth Management Act(GMA) to require every city planning under GMA, and having a general aviation airport in its jurisdiction, to discourage the siting of land uses that may be incompatible with aviation. The Renton Municipal Airport, a general aviation airport located in Renton, Washington, is considered an Essential Public Facility(RCW 36.70A.200)by state definition. The Airport lies in close proximity to Downtown Renton and the South Renton residential neighborhood. The issues related to compatibility of land use in proximity to an airport, particularly one in an urban context, are complex. Due to the complexity of both aviation- related land use in general and the context of the Renton Airport, the City of Renton initiated airport compatible land use planning in a phased approach. The Municipal Airport Compatible Land Use Program(ACLUP), including activities associated with the adjacent Will Rogers—Wiley Post Memorial Seaplane Base, was initiated in 2003. The policies and development standards, formulated by the City of Renton Economic Development,Neighborhoods, and Strategic Planning Department, focused on the part of Renton's Urban Center located north of the Cedar River and east of the airport. The first Airport compatible land use policies were adopted by the Renton City Council in December 2003, simultaneously with Comprehensive Plan amendments to provide policy foundation for redevelopment of the area designated"Urban Center-North." It was known when this "City of Renton Urban Center—North Airport Compatible Land Use Program"was adopted that the report would need to be supplemented in order to include the area located south and west of the airport. This, then, is that supplemented report. The policies and development standards adopted in 2003 are included herein, supplemented by additional policies and development standards that address situations and conditions beyond those studied in 2003. A significant difference between this report and the previous one is the inclusion of"overflight impacts." The impacts from flight patterns over the City are of concern to many, but are "" CITY OF RENTON Airport Compatible Land Use Program difficult to regulate. This report includes a study of the overflight issue and makes appropriate suggestions for relevant policies. i This report, "Renton Municipal Airport Compatible Land Use Program," completes the City of Renton's planning for compatible land use in the vicinity of its airport and fulfills the City's responsibility to meet the state mandate for protection of General Aviation airports that are essential public facilities. II. Renton Airport Background The site of the Renton Municipal Airport, at the south end of Lake Washington in the City of Renton, is generally where the Cedar River originally flowed into the Black River (approximately at the intersection of Airport Way and Rainier Avenue at the southwest corner of the airport). In 1917, with the opening of the Montlake Cut and the subsequent lowering of the Lake,the Black River was eliminated as an outlet from the Lake. The Cedar River was channelized and redirected to flow into Lake Washington. The Cedar River(channel)now forms the eastern boundary of the airport. A portion of the land was a horticultural nursery, the Bonnell Nursery(located near the FAA tower). In the 1920's a turf strip, the Bryn Mawr Airfield, was opened between the nursery and the lakeshore. The Bryn Mawr facility was used as a take-off point for aircraft flights to Alaska, which required pontoons for water landings. Will Rogers and Wiley Post departed from Bryn Mawr Airfield on their last flight to Alaska, where they crashed, on August 7, 1935. The seaplane base located at the north end of the airfield was subsequently named the Will r Rogers-Wiley Post Memorial Seaplane Base. In the 1930's the United States the Defense Plant Corporation (DPC) assembled land and other resources for a national defense system. One such assembly was the Boeing Renton Plant Site and the Renton Airport, known during World War II as "Plancor 156." The land for Plancor 156 was acquired by the DPC by purchase and condemnation. The Reconstruction Finance Corporation(RFC) succeeded the DPC after the war and, in 1945,took over its assets, including Plancor 156. Ownership of the 161.83-acre airport was transferred from the RFC to the City by quitclaim deed in September 1947. III. Boeing and the Renton Airport In 1941, the Department of the Navy constructed the first portion of the Boeing Renton Plant to develop the experimental aircraft,the Sea Ranger. The Renton Plant property was leased to • the Boeing Company during WWII. The existing runway was constructed in 1943 to provide checkout and take-off capability for the Boeing B-29 Superfortress. Over 1,100 B-29s were flown from Renton Field. 2 CITY OF RENTON Airport Compatible Land Use Program The Boeing Company continued to lease the land for its manufacturing plant from the federal government and, in 1952, began to produce its first prototype jet transport. Later, the Commercial Airplane Division selected the Renton Plant for production of the commercial transport aircraft. Boeing purchased the manufacturing site from the federal government in 1962. At the present time, Boeing accesses the airport by two bridges over the Cedar River. The Airport is integral to the operations of the Boeing Company in Renton because 737s and, until recently, 757s have been flown out of Renton following assembly. In addition, adding to the continuing viability of the airport, Boeing occupies about 52 percent of leased area at the Airport. IV.Renton Municipal Airport and Will Rogers—Wiley Post Memorial Seaplane Base Characteristics An analysis of airport characteristics is critical to the formulation of a useful land use compatibility program. No two airports have the same dimensions, service capability, or are set in the same physical situation. The following characteristics are particular to the Renton Municipal Airport and Will Rogers—Wiley Post Memorial Seaplane Base and serve to define the compatibility criteria for land uses in proximity to the Airport. A. Service Capability Based on Functional Classification and Design Type Renton Municipal Airport is a"General Aviation"facility. General Aviation includes all aviation activity with the exception of certified air carriers and military aircraft. Aviation service for charter flights, aviation taxi service,business/corporate and recreation flying are provided from Renton Airport to the Central Puget Sound region. In addition to General Aviation, three other aviation classifications apply to the Renton Municipal Airport. It is classified as a Reliever/Transport Airport by the National Plan of ,. Integrated Airport Systems (NPIAS). The NPIAS classifies Reliever Airports as metropolitan area general aviation airports that serve to reduce airport congestion by providing facilities and service suitable for attracting and diverting general aviation activity .. away from major air carrier airports. A Transport Airport serves aircraft with wingspans greater than 118 feet and with approach speeds of 121 knots or more. Transport runways usually have the capability for precision approach operation. The Airport Reference Code (ARC) is a coding system developed by the Federal Aviation Administration to relate airport design criteria to the operational and physical .. characteristics of the aircraft intended to operate at an airport. The ARC has two components relating the airport design to aircraft. The first component, depicted by a letter, is the aircraft approach category and relates to aircraft approach speed. The second component, depicted by a Roman numeral, is the airplane design group and relates to 3 CITY OF RENTON Airport Compatible Land Use Program airplane wingspan. Generally, aircraft approach speed applies to runways and runway related facilities. Airplane wingspan primarily relates to separation criteria involving 4M taxiways and taxilanes. Airports expected to accommodate single-engine airplanes normally fall into ARC B-I. Airports serving larger general aviation and commuter-type planes are usually ARC B-II or C-II. Small to medium-sized airports serving air carriers are usually ARC C-III, while larger air carrier airports are usually ARC D-VI. The Renton Municipal Airport's ARC classification is B-II, but can accommodate large aircraft such as the Boeing 757. There is no precision landing system at the Renton Airport, although there is an FAA tower, a non-directional beacon, a non-precision/non-directional beacon approach to Runway 15, and a Global Positioning System,non-precision approach to runway 15. Floatplanes utilize the Will Rogers - Wiley Post Memorial Seaplane Base facilities located at the north end of the Airport. The Seaplane Base is the only publicly owned floatplane facility in the Seattle area, although similar activities occur at privately owned facilities on '` Lake Union and at Kenmore, at the north end of Lake Washington. These two areas, however, are greatly constrained by boat traffic. 40 The Puget Sound area is the southern terminus for seaplane operations that are vital to the economy and general support of communities and businesses up the Pacific Coast from 40 Washington through British Columbia and into Alaska. The Will Rogers - Wiley Post Memorial Seaplane Base and the Kenmore facility are the only facilities in the Puget Sound area with haul-out facilities for maintenance and repair of floatplanes. do B. User Type ' Most of the based aircraft at the Renton Airport, 90.4 percent, are single-engine. Multi- engine aircraft make up 7.6 percent, helicopters 1.1 percent, and jets 0.8 percent. ' Projections to 2021, included in the Renton Municipal Airport Business Plan (2002), indicate that increases in multi-engine and jet aircraft will result in a total of 13 percent for these types. This has long-range implications for business development at the Renton ' Airport, given both available capacity at Renton and the limited ability for such growth at the SeaTac and Boeing Field Airports. The Renton Airport/Will Rogers-Wiley Post Seaplane Base are designated a US Customs Landing Rights Airport. C. Volume of Use The primary use of the Airport is by single-engine piston aircraft. The high level of use by single-engine aircraft makes Renton Municipal Airport one of the top seven general aviation facilities in the state in aircraft landings and takeoffs. 4 .. CITY OF RENTON Airport Compatible Land Use Program Approximately 16 percent of the total of based aircraft at the Renton Airport are seaplanes. This represents about 33 percent of all Puget Sound area seaplanes. Seaplane take-offs and landings represent a significant level of activity at the Airport. Commercial seaplane businesses provide on-demand and seasonal air taxi services for activities such as sightseeing, environmental testing and monitoring, contract shuttle service, photography, and general transportation. During the four-month, summer salmon fishing season (April or May to mid-September) many flights originate at Renton and fly to British Columbia. Although statistics are unreliable,the estimated number of passenger enplanements during this four to five month period, from Renton, is almost 10,000 people. There is no significant use of the Renton Airport by military aircraft, although following September 11, 2001, some military activity was devoted to "touch and go" exercises for r defense purposes. D. Capacity The relationship of existing demand to existing capacity for both annual air operations and land services was measured at regional airports and reported in the 2001 Regional Airport System Plan (RASP). Airfield, or airside, capacity is measured as the number of takeoffs and landings an airport can accommodate over a given time period given the layout of runways and taxiways, weather conditions, and mix of aircraft using the facility. Boeing use is about 3 percent of total airside capacity. Landside capacity is a measure of existing supply of parking(tie-downs or hangars). Boeing leases about 52 percent of the landside capacity of the airport for their operations. The RASP inventoried the Renton Airport's Airside Demand/Capacity Ratio at 44 percent and its Landside Demand/Capacity Ratio at 94 percent. E. Physical Characteristics ,. The Renton Airport is approximately 170 acres in size(exhibit A). The asphalt and concrete runway has a full taxiway parallel along the west side and a partial taxiway along the south two-thirds on the east side. The runway length is 5,379 feet, it is 200 feet wide • for most of its length,but a 300 to 340 foot displacement at the south results in 5,029 feet of useable length for landings on Runway 33 and 5,079 feet of length for landings on Runway 15. The full length is available for take-offs on both runways. Most business aircraft can conduct normal operations on a field of this length, larger corporate jets, however,may have to limit fuel loads on takeoff during hot weather. The Will Rogers - Wiley Post Memorial Seaplane Base facilities consist of a floating dock, access ramp, and 200 foot by 5,000-foot water lane in Lake Washington. Seaplane traffic often turns at midfield and travels north along the Cedar River for a water landing just north of the runway. 5 CITY OF RENTON Airport Compatible Land Use Program F. Airspace Characteristics Because the Renton Airport has a tower, the airspace above it is classified as Air Traffic Control Tower Airspace. For Renton, the airspace is classified as Control Zone D Airspace. The airspace has a radius of approximately five miles. This airspace lies beneath the Class B Airspace for the SeaTac airport(exhibit B). In addition, designated King County International Airport airspace abuts the west edge of the Renton Airport (exhibit B). Therefore, flights over the West Hill and portions of Southwest Renton may originate from or are flying to,the King County Airport(exhibits C and D). Flights to and from Renton are forced by circumstance into a concentrated pattern over Talbot,Renton, a and Windsor Hills,the Highlands, and Kennydale. r V. Risk Assessment A. Concept of Risk Assessment 40 When developing a program designed to ensure the safety and welfare of a community, decisions must be made that are based on an assessment of the risk inherent in the actions taken (or inaction). "Risk" is defined as exposure to the chance of loss. Risk can be voluntary, such as in lifestyle choices, or involuntary, such as people at risk on the ground under airspace. In terms of aviation,potential loss is rarely fatal to people on the ground. Even so, the potential for serious injury or loss of life is present and"zero risk" is almost impossible to achieve. Again, in the case of aviation, if all uses and people were removed from the Airport Influence Area,risk to airplane occupants would still exist. Zero risk from aviation would only be possible if no aviation took place. With involuntary risks, the best that can be hoped for is to reduce risks to a level that is acceptable to the community. The development of an airport compatible land use program is an attempt to reduce ,. exposure to risk within the City of Renton and to users of the Renton Municipal Airport. This can be done in several ways. First, landowners and developers can be made aware of strategies to ensure that development projects do not increase hazards to aviation. .. Planners, in reviewing such proposed projects, can use policies and development standards to assess the potential for incompatibility with aviation operations. People with extreme fear of potential aviation mishaps or a high degree of sensitivity to aviation impacts can be made aware in various ways of areas to avoid when choosing a residence or place to work or recreate. do Given that risk cannot be completely eliminated, the goal is to reduce the consequences of accidents. The strategies to achieve this include limiting the intensity and density of uses and providing protection to special populations, such as the elderly, very young, or infirm, in certain areas in proximity to the Airport. 6 CITY OF RENTON Airport Compatible Land Use Program The Federal Aviation Administration (FAA) regulates for safe operations of both airplanes and airports. The FAA, however, has no jurisdiction over land uses adjacent to the airport. The Airport Compatible Land Use Program is intended to increase safety and land use compatibility beyond the boundaries of the airport. B. Local Risk What is the level of risk in Renton? This can be calculated by using national statistics that assess risk. Also, records of actual aviation emergency incidents in Renton are available. [The aviation industry defines accidents as emergency events that result in fatalities or serious injury to people either on an airplane or on the ground. Incidents are events with less serious consequences. Mishaps are accidents and incidents together.] The unpredictable nature of aviation risk, however, means that only one accident can mean disaster. Off-airport accidents and injury to people on the ground from aviation emergencies are very rare. Even so, safety is a factor that can be increased. dw National Transportation Safety Board(NTSB) data indicates that Renton Municipal Airport has experienced 64 aviation mishaps since 1964, with ten fatalities in seven accidents. This is approximately 1.5 mishaps per year. Potential hazards to aviation have been regulated by ordinance (Ord. 1542) and in the Renton Municipal Code since 1956 (RMC 4-3-020). The initiation of an airport compatible land use program is particularly timely because of the recent interest in Renton shown by the development community. As density of population and intensity of use increases adjacent to the airport, the potential consequences of an aviation emergency incident also increase. Adoption of an airport compatible land use program will ensure that the City's aviation safety record is the best possible. C. Risk Potential With the exception of ensuring that obstructions are not allowed to interfere with airspace, compatible land use planning has little influence on the frequency of aviation accidents. Off-airport accidents are infrequent. The foundation of an airport compatible land use program is an assessment of potential risk. Risk is measured in several ways. The basis for risk assessment within the Airport Influence Area is guidelines provided by the State of California Department of Transportation Division of Aeronautics, "California Airport Land Use Planning Handbook,"January 2002. Airplane accident risks are physical in nature and consist of a single event(as opposed to effects that evolve over an indefinite period of time). Assessment of risk("what might happen") is measured in terms of frequency, distribution, and consequences. Frequency and distribution are quantitative assessments, but consequences are measured qualitatively. The types of risk in aviation are accident risk, individual risk, and societal risk. The accident risk rate is the number of airplane crashes anticipated to occur on an annual basis 4W 7 r CITY OF RENTON Airport Compatible Land Use Program within a given area. Individual risk is aviation hazard to an individual on a 24 hour, 365- day year basis. The risk of fatality, not injury, is usually the only consideration in do assessing individual risk. A societal risk is one that has consequences beyond the accident itself. It may be a factor influenced by public perception such as the belief in a lack of safety of a particular type of aircraft. D. Perception of Risk In addition to risks that can be largely measured in one way or another, the public's perception of risk is another factor to be considered in a risk assessment. Communication of risk is important in formulating policy to manage risk. The presentation of the City of Renton's Airport Compatible Land Use Program to elected officials, stakeholders, and the public should raise awareness of risk in Renton from aviation accidents and, hopefully, reassure the community that the actual risk is low. E. Aviation Emergency Type in Relation to Risk In assessing potential risk, and planning for land use compatibility, a basic understanding of the types of aviation emergencies is required. Generally, aviation emergencies are of two types, ones in which the pilot creates the emergency and those caused by something else, but to which the pilot may be able to react. At general aviation airports, the most common occurrence of the first type is caused by the failure to maintain air speed, which in turn results in uncontrolled descent. The second type is most often caused by adverse wind and weather conditions and loss of power due to engine failure from mechanical problems or lack of fuel. If airspeed can be maintained, most airplanes (even large jets) can land safely without functioning engines. ,. F. Aircraft Type and Size in Relation to Risk Airplanes are primarily of two types, multi-engine and single-engine. Although multi- engine and business jet aircraft have fewer mishaps, the consequences may be greater due to their larger size. Also, while pilots may have a remaining engine and be able to land multi-engine airplanes in an emergency, the aircraft are more difficult to control due to • asymmetrical thrust characteristics. Often,pilots tend to think they can make it back to the airport and continue to remain airborne longer than they should. With single-engine airplanes, when the engine fails, the pilot is forced to descend and land immediately. For these reasons, a factor of risk to a community is the proportion of single- engine to multi-engine planes that use the airport. At the Renton Airport, over ninety percent of the based aircraft are single-engine airplanes. 8 r do CITY OF RENTON Airport Compatible Land Use Program i G. Emergency Landing Characteristics as Pilots are taught to follow certain procedures in case of an engine-failure emergency. The basic steps, if possible, include keeping the airplane under control, determining the problem, attempting to restart the engine and finally, if necessary, making an emergency "` landing. Pilots will look for a large, flat, open area without people, buildings, large trees, or other objects in which to land. Wires or other obstructions may be difficult to see and night emergency landings are particularly perilous. H. Location of Accidents As mentioned above, important to the measure of frequency of incidents is the additional factor of their location. The National Transportation Safety Board compiles data on low aviation incidents. Based on NTSB records from 1990 to 2000, 68 percent of general aviation incidents take place on the airport. Another 29 percent occur within five miles of the airport ("airport vicinity accidents"), and 3 percent occur more than five miles from the airport. This information was used by State of California Department of Transportation to establish the six "safety zones"used in airport land use compatibility planning(see discussion below, and exhibit E). Of the general aviation on-airport or near-airport landing accidents, most (77 percent) occur during touchdown or rollout. The remaining 23 percent take place within the landing pattern. For these reasons,the most critical safety zones are those that include the "Runway Protection Zone,"the "Inner Safety Area,"the "Inner Turning Area,"the "Outer Safety Area," and the"Sideline Safety area." Although these five zones account for only 20 percent of the total land area in the Airport Influence Area, they are the location of most of the accidents. In Renton, this area of higher probability of risk is located over the west portion of the Downtown and South Renton. The Sideline Safety area runs parallel to and west of Rainier Avenue on one side and along the Cedar River on the other. Statistics indicate that the locations of take-off accidents are more widely spread than those ,. during landing. In Renton, take-offs occur over Downtown Renton or Lake Washington, depending on wind direction. .. 1. Risk to Residences and Other Buildings Both NTSB data for 1982 through 1989, and that from the Aircraft Owners and Pilots •■ Association for the years 1964 through 1982, indicate that few aviation incidents involve residences or other buildings. The data average of these two sources resulted in the conclusion that the annual percentage of building-airplane incidents over the years studied do equal 0.65 percent of all incidents. In addition to infrequency of this incident type, the wide range of variables such as aircraft size and type (design) and residential density or building type (number of stories) make it difficult to predict probability of consequences. 9 AN CITY OF RENTON Airport Compatible Land Use Program am J. Risk and Compatible Land Use Planning y' If risk is exposure to chance of loss, the corresponding question is, "What is the cost of reducing that exposure?" In developing a compatible land use program, certain costs must be weighed against the perceived increase in safety. Therein lies the "risk assessment." "' Each community must make this decision independent of what other jurisdictions may choose to do. Costs in Renton may include reducing density in the Urban Center, which lies within the Airport Influence Area, at the "expense" of ultimately increasing density elsewhere in the City. to Strategies to reduce risk and increase safety are based on several principles. They are: 1. Limitation on intensily of use, measured by the number of people expected to be attracted to the use on a per acre basis. The International Building Code can be used to assess the potential occupancy of buildings as a measure of potential intensity. This approach is primarily for non-residential uses. 2. Limitation on residential use, measured by the number of dwelling units per net developable acre. Although residential buildings have not been involved in a significant number of off-airport accidents, residential uses are generally provided more protection than non-residential uses. Intensity of nonresidential use is usually allowed at higher rates than density of residential use in airport land use compatibility planning. 3. Protection for special populations, such as young people or those who have reduced mobility, such as the elderly or ill. The theory is that this group would have greater difficulty in getting away from the scene of an emergency. The uses included in this category are day care centers,K-12 schools,hospitals, and convalescent centers. 4. Control of hazardous materials, such as aboveground storage of large quantities of flammable or other hazardous materials. In Renton, the Fire Prevention Bureau uses fire code regulations (RMC 4-5-070C 17)to control the storage of hazardous materials. do Because effective regulations are in place that provides maximum compatibility with aviation operations, no additional measures for hazardous material regulation are included in the ACLUP. 5. Proximity to critical community infrastructure, such as power substations, domestic water resources, and emergency communication facilities. The Puget Sound Energy •• substation and the King County Wastewater Treatment Plant are regional utility facilities located within the Airport Influence Area. Because they are existing facilities, they would not be affected by newly adopted policies. Siting of any new facilities, however, should be subject to the provisions of the ACLUP. 6. Prevention of hazards to flight, such as obstructions of the airspace, danger to aviation from wildlife, and interference to navigation or communication. 10 CITY OF RENTON Airport Compatible Land Use Program In Renton, obstructions have been prevented, based on long-standing Renton Municipal Code regulations (RMC 4-3-020). dW A serious hazard at many airports, and the Renton Airport in particular, are large populations of Canadian geese and seagulls, within the boundaries of the airport and in proximity to the airport beyond its boundaries. Pyrotechnics are utilized at the Airport to disperse geese and seagulls. This effective, but loud, technique may be annoying to residents currently in the vicinity of the Airport. Although less obtrusive methods to haze birds would be desirable,none currently known are as effective. The Airport is located approximately 0.6 mile from 55-acre Gene Coulon Memorial Beach Park. The Park has over a mile of waterfront that is a feeding and breeding area for geese and seagulls. Bird eradication efforts at the Park may actually result in increased numbers of fowl at the airport as they attempt to relocate. The salmon-rearing habitat in the Cedar River, adjacent to the airport, is of additional concern. The spawning of salmon attracts prey, most notably great blue heron and bald .. eagle. The mouth of the Cedar River corresponds approximately with the north end of the runway where take-offs occur. Bird strikes (collisions between fowl and aircraft) are a very serious threat and an on-going problem at the Renton Airport. K. Risk Assessment Conclusions The primary purpose of the City of Renton's Airport Compatible Land Use Program is to increase safety and land use compatibility outside the boundaries of the Airport, within the Airport Influence Area. The Risk Assessment conducted by the City evaluates a number of factors related to safety, including the number, type, and frequency of on- and off-airport aviation incidents in Renton, national statistical information on aviation mishaps in general, specific land use and airport operational characteristics unique to Renton, safety principles (e.g. protecting special populations, limiting density and intensity of land uses, preventing hazards to flight), and safety compatibility criteria guidelines for determining density and intensity. . The Risk Assessment is based on the review of various resources, including: the Renton Municipal Airport Master Plan Update (1997);National Transportation Safety Board accident statistics; the Washington State Department of Transportation's Airports and •• Compatible Land Use, Vol. 1, 1999; the Denver Regional Council of Governments' Airport Compatible Land Use Design Handbook(1998); the Puget Sound Regional Council's 2001 Regional Airport System Plan; and, the State of California Department of Transportation's (CalTrans) California Airport Land Use Planning Handbook, 2002. Nationwide, the CalTrans study is the most recent and comprehensive study completed to date, and is also the most applicable to the City of Renton in that it addresses land use compatibility with airport operations in urban areas. 11 do CITY OF RENTON Airport Compatible Land Use Program Based on the "Basic Safety Compatibility Qualities" (exhibit F) and"Criteria Guidelines" (exhibit G)presented in the CalTrans Airport Land Use Planning Handbook(2002), there is a"generally low likelihood of accident occurrence at most airports; risk concern primarily is with uses for which potential consequences are severe" (e.g. outdoor stadia and similar uses with very high use intensity). The City has developed objectives,policies, and recommended development standards for each of the aforementioned safety principles with the exception of"control of hazardous materials" (already regulated by the City's fire code), based on its review and analysis of the data and applicable land use planning information. Recommended land uses and associated densities across the Airport Influence Area are consistent with the CalTrans recommended guidelines and criteria. Residential use is prohibited within Safety Zone 5 (1000 feet from the centerline of the runway). Land uses and densities proposed for Safety Zone 6 reflect the City's planning goals and are considered compatible with airport operations based on the literature and data review. Objectives, policies, and recommended development standards addressing aviation safety both on the ground and to airplane dW occupants are described below in Section VII under the headings General Aviation Safety and Airspace Protection. Implementation of the Airport Compatible Land Use Program, based on the Risk Assessment described above, is intended to reduce exposure to risk within the Airport influence area,to users of the Renton Municipal Airport, and to the community. VI. Airport Compatible Land Use Program A. Authority to Regulate The City of Renton's implementation of RCW 36.70.547, which requires regulation of land uses in proximity of General Aviation airports, is authorized by City of Renton Ordinance 4722,pursuant to Article XI, Section 11 of the Washington State Constitution. The ACLUP addresses off-airport activities exclusively. The Federal Aviation Administration regulates on-airport activities only. There is precedence for the FAA to oppose land use regulation by jurisdictions when those regulations directly impact aviation activities. An example is when regulations are deemed to be discriminatory toward certain aircraft. For example, attempts by cities to regulate against noise at the source by limiting .. the type of aircraft that might use a facility"may have an impermissible impact on rights of transit." „W At the Will Rogers—Wiley Post Memorial Seaplane Base, seaplanes are under jurisdiction of the Renton Airport and City of Renton while they are docked. As soon as they leave the dock, the regulations of the US Coast Guard apply. r 12 r CITY OF RENTON Airport Compatible Land Use Program .. [note: "seaplanes" and"floatplanes"are terms used in the ACLUP to refer interchangeably with seaplanes, floatplanes, amphibians, and any other aircraft capable of water takeoffs and landings] In addition to FAA regulations, on-airport activities are guided by Renton Municipal Airport Business Plan (February 2002), the Airport Master Plan Update (August 1997), and the Transportation Element of the City of Renton Comprehensive Plan (February 1995, as amended in 2003 and 2004). To the extent that these may apply to off-airport land use compatibility issues, they have been used in the formulation of the ACLUP. Other resources are listed at the end of this report. The Airport Master Plan Update (Plan) includes provisions for reducing impacts at the source (on-airport). The following is a summary of relevant aspects of the Airport Master Plan in this regard. Objectives of the Plan include: 1. Provide airport facilities and services for all users in a manner that maximizes safety, efficiency, and opportunity for use. AW 2. Consider safety as a primary factor in all decision making situations in the development of the airport. 3. Ensure compatibility with local and use patterns and plans. The following relevant parameters were used for developing guidelines for future Airport improvements and modifications: 1. Provide facilities in a manner that minimizes impacts on the community. s 2. Plan future airfield alternatives that maintain an emphasis on airfield safety and efficiency. It is the intention of the City of Renton that the Plan and the ACLUP be used in concert to ensure the highest level of land use compatibility between airport and other land uses in the City. 40 Policies supporting the objectives of the ACLUP were adopted as amendments to Renton's Comprehensive Plan in 2003 and 2004. Zoning, development standards, and other land use regulations are generally included in Title IV of the RMC. Renton Municipal Code, Chapter IV, Development Regulations has been revised to include implementation of the policies. B. Program Scope The City of Renton is committed to minimizing the risk associated with potential aviation incidents on the ground and for aircraft occupants. 13 1 CITY OF RENTON Airport Compatible Land Use Program The City initiated planning the Airport Compatible Land Use Program to achieve that goal. The intent of the ACLUP is to achieve a balance between aviation infrastructure preservation and quality of life for the Renton community. The ACLUP does not affect operations of either the Renton Municipal Airport, or the Seaplane Base, but rather is intended to ameliorate impacts on the Renton community from airport operations. Although adoption of the ACLUP may impact future land use and development in the plan area, existing land uses in the City will not be affected. C. Planning Area Mandates from the state aside, compatible land use planning is an important issue to Renton due to the Municipal Airport's proximity to Downtown Renton, the South Renton residential neighborhood, and the West Hill area. Overflights from Renton Airport also occur to the east, over Renton Hill and Kennydale. i The Airport Compatible Land Use Program addresses compatible land use issues within the "Airport Influence Area" (exhibit E). With the area added to the ACLUP in 2004, the program area generally runs north-south, corresponding to the layout of the airport runway. It extends from Lake Washington on the north to beyond Interstate 405 on the south. On the east, it includes North Renton, Southport, and Gene Coulon Memorial Beach Park and extends beyond I-405 to include portions of Renton Hill, Kennydale, and North Kennydale. On the west, it includes the Rainier Avenue corridor and areas of Lakeridge, West Hill, and Earlington. Portions of these last three neighborhoods are in unincorporated King County, as well as in Renton. ,. The ACLUP includes area approximately 5,170 acres in size (excluding over-water area of Lake Washington). Of this, approximately 614 acres are within Safety Zones 1 through 5 (most critical area) and 4,556 acres are within Safety Zone 6 (least critical area). �. Approximately 953 acres of the plan area are in unincorporated King County. D. Planning Process In formulating the Renton Airport Compatible Land Use Program(ACLUP), the Economic Development,Neighborhoods, and Strategic Planning Department met formally with the Aviation Division of the Washington State Department of Transportation and stakeholders having an interest in the Renton Municipal Airport or the Airport Influence Area. The stakeholder group included residents of areas affected by airport noise and potentially inconvenienced by aviation operations,pilots and pilot associations, airport leaseholders, including The Boeing Company, business owners,Boeing Real Estate Inc., City of Renton Transportation Division(responsible for management of the Airport), Development " Services Division(responsible for reviewing development proposals), the City of Renton 14 CITY OF RENTON Airport Compatible Land Use Program Fire Prevention Bureau(responsible for hazardous waste management), and the Renton Airport Advisory Committee. Comments were received on the draft ACLUP from the FAA and the Puget Sound Regional Council. The consulting firm of Mead& Hunt, Inc. (formerly Shutt Moen Associates)provided peer review. E. Program Structure The Renton Airport Compatible Land Use Program addresses four primary categories of airport land use compatibility. "Compatibility"includes issues of safety and annoyance, particularly when the latter may affect human health. The categories of airport land use compatibility most significant in the Airport Influence Area(and beyond) are, general .. aviation safety, airspace protection, aviation noise, and overflight. While there may be some overlap, each has characteristics particular to its category. For that reason, each category included in the ACLUP is analyzed in terms of the compatibility objective and .. strategies to meet the objective, and the criteria and measurements used to ensure that the objective is met. F. Applicability r New land uses proposed within the Airport Influence Area that are subject to State Environmental Policy Act(SEPA)Review are subject to review according to the guidelines set forth in the Airport Compatible Land Use Program, except as otherwise exempted. G. Exemptions Uses existing at the time the ACLUP is adopted are exempted, as are the following: 1. Necessary aviation facilities: Any aviation facility, airport visual approach or ,., aircraft arresting device, or meteorological device, or a type of device approved by the FAA, the location and height of which is fixed by its functional purpose. 2. Temporary uses: Temporary uses including, by not limited to circus, carnival, or other outdoor entertainment events, and religious assembly, so long as the period of operation does not exceed a predetermined amount of time as approved by the Director •• of Development Services. 3. Nonconforming uses: A use, lot,building, or structure that legally exists prior to the effective date of the ACLUP,provided that no building, structure, or use shall be so changed as to result in a greater degree of nonconformity. H. Implementation 1. Jurisdiction: The City of Renton divisions and departments with Airport management and Airport planning jurisdiction are the following: 15 r CITY OF RENTON Airport Compatible Land Use Program a. Planning/Building/Public Works Department i. Transportation Division—Airport management ii. Development Services Division—land use planning review, building permit review, construction inspection, and code enforcement b. Economic Development,Neighborhoods, and Strategic Planning—business development, land use planning, long range planning, and code formulation 2. Review Procedures: All potential projects located within the Airport Influence Area are required to request and attend a Preapplication Meeting in accordance with RMC 4-8-100A. 3. Submittal Requirements: Special Land Use Master Application submittal requirements for Airport Compatible Land Use Program review are as noted in RMC 4- 8-120C. These special submittal requirements include the following items: a. A certificate from an engineer or land surveyor,that clearly states that no 40 airspace obstruction will result from the proposed use. b. The maximum elevation of proposed buildings or structures based on the established airport elevation reference datum. 4. Complete Application: The reviewing authority,the Development Services Division of the Planning/Building/Public Works Department has the responsibility of r. determining if the Land Use Master application is complete and includes the special submittal requirements for projects proposed to be located with the Airport Influence Area. 5. Actions Available: The reviewing authority has the following choice of actions available when reviewing a project to be located with the Airport Influence Area for „M which a complete application has been received: a. Recommend approval of the proposed land use action, b. Recommend denial of the proposed land use action, .. c. Recommend approval of the proposed action with plan modifications, or d. Recommend approval of the proposed action with project mitigation. do VII. Airport Compatible Land Use Program Objectives and Strategies .. A. General Aviation Safety 1. Compatibility Objective: Minimize risk associated with off-airport aviation operations. 2. Criteria: Limitation of density or intensity of use in areas most susceptible to off- airport aviation emergency incidents. 16 CITY OF RENTON Airport Compatible Land Use Program 3. Measurement: Use International Building Code for building or structure occupancy and dwelling units per net acre of developable land for residential density. Am 4. Discussion: The Puget Sound Regional Council has predicted a slightly more than five percent reduction in single-engine propeller aircraft use of the Renton Airport by 2007. It is expected, however, that the Airport will continue to have predominately single engine aircraft over the next few decades. This relates to safety in that single-engine aircraft are more likely to experience undirected crashes. Land uses where the occupants may have limited mobility and therefore difficulty in evacuating an area during an emergency such as schools, hospitals, and convalescent centers, should not be located in the most critical safety zones, 1 through 5. Limitations on obstacles and density and/or intensity of use,particularly those listed above, may reduce risks. .. 5. Strategies to Meet Objective: Policy Development Standard Adopt an airport compatible land use The Airport Influence Area Map program for the Renton Airport shall consist of Safety Zones 1 Influence Area, including an Airport through 6,based on the California ,. Influence Area Map. Airport Land Use Planning Handbook, January 2002. .. Develop performance-based criteria for .Public assembly may be land use compatibility with aviation conditioned in terms of frequency activity. of use, time of use, and number of people assembled. •Residential uses may be conditioned in relation to residential density. •Tall trees,bird attractants, and uses that produce smoke, dusk, glare, electronic signals may be restricted in the Airport Influence Area. s r 17 s an CITY OF RENTON Airport Compatible Land Use Program AN • In the Airport Influence Area, adopt use • No use shall be made of any land restrictions, as appropriate, that meet or that will cause electrical exceed basic safety considerations. interference with navigational signals or radio communications at the airport or with radio or electronic communications between the airport and aircraft. • No use, building, or structure shall emit dust, vapor, gasses, or other emissions that may conflict with operations of the airport. • No structure, device, or other object shall be placed or erected dW that makes it difficult for pilots to distinguish between airport lights and other lights, results in glare in the eyes of pilots using the airport, impairs visibility in the vicinity of the airport, or .. otherwise endangers the landing, taking off, or maneuvering of aircraft. B. Airspace Protection dw 1. Compatibility Objective: Reduce obstacles to aviation in proximity to Renton Municipal Airport. Obstacles may include built structures and trees. 40 2. Criteria: Use Federal Aviation Regulation Part 77 Surface mapping. .. 3. Measurement: Compare Land Use Master Application submittal materials with Federal Aviation Regulation Part 77 Surface mapping within the Urban Center- North. 4. Discussion: Aviation accidents are not primarily caused by interference from obstacles. Nevertheless, it is important to keep aviation operations free from obstacles. According to the 2001 Regional Airport System Plan inventory of Puget Sound Regional airports, the Renton Airport runway and the Seaplane base are two of 32 runways (out of 72) that do not have obstructions within the approach areas. The Renton Airport approach area has been regulated by Ordinance (No. 1542) since 1956, and Renton Municipal Code (Title IV Section 3-020) in regard to 18 CITY OF RENTON Airport Compatible Land Use Program Airport approach, transition and turning zones; height and use restrictions, and hazard marking and lighting. 5. Strategies to Meet Objective: Policy Development Standard Require that submittal requirements for Require submittal of either of the proposed land use actions disclose following: potential conflicts with airspace. • A certificate from an engineer or land surveyor, that clearly states that the proposed use shall not penetrate the FAA Part 77 Surfaces protected airspace above the City of Renton. • The maximum elevation of proposed buildings or structures based on the established airport elevation reference datum shall not penetrate the FAA Part 77 ,. Surfaces protected airspace above the City of Renton. Elevations shall be determined .. by an engineer or a land surveyor. r Provide maximum protection to Renton • Amend Ordinance 1542 so as to airspace from obstructions to aviation. revise the Renton Municipal Code (RMC Title 4-3-020 "Airport Related Height and Use Restrictions") to incorporate the Federal Aviation Regulation Part 77 "Objects Affecting Navigable Airspace"mapping (airspace protection thresholds, see exhibit H). • Procedures shall be developed to reduce bird populations and eliminate bird attractants that may be a hazard to aviation operations at the Renton Municipal Airport. 19 CITY OF RENTON Airport Compatible Land Use Program w Prohibit buildings, structures, or other Revise Site Plan Review criteria to objects from being constructed or altered include project conformance with so as to project or otherwise penetrate the Federal Aviation Regulation Part airspace surfaces, except as necessary 77 Surface requirements (airspace and incidental to airport operations. protection thresholds). C. Aviation Noise 1. Compatibility Objective: In Airport Influence Area, address impacts of aviation noise that is at a level deemed to be a health hazard or disruptive of noise-sensitive activities. 2. Criteria: Federal and state criteria for maximum acceptable noise levels in different situations have been established in laws and regulations. These include the Federal Noise Control Act of 1972, the Aviation Safety and Noise Abatement Act of 1979, and Revised Code of Washington Title 70.107. The primary guidelines, used nationally for aviation land use compatibility, are included in the do "California Airport Land Use Planning Handbook,"2002 edition,by the State of California Department of Transportation (CalTrans)Division of Aeronautics. The CalTrans document incorporates the guidelines in "Airports and Compatible Land 10 Use, vol.I,"by the Washington State Department of Transportation, Aviation Division. 3. Measurement: Use the threshold of 65 DNL as the determinant in recommending limitations on land uses or establishment of noise abatement programs. Noise generated by aviation operations to, from, and around the airport at levels of 65 DNL or more are considered to potentially cause negative impacts. Cumulative noise levels have been measured around the airport and mapped as a series of contour lines connecting points of the same noise exposure. For the Renton �., Municipal Airport, this mapping was done in 2001, and estimated into the future to the year 2015. w 4. Discussion: The most significant noise issue associated with the Renton Airport has been repeatedly identified(in Master Plan updates from 1978 on) as the impact from jet engine testing by the Boeing Company. This has also been considered the do most adverse environmental impact from the Airport. The 2002 Renton Municipal Airport Business Plan further states that"noise problems" are from a combination of sources including touch-and-go training flights, operation noise from jets, seaplanes, and other aircraft. Seaplanes departing from the Rogers—Post Seaplane Base are directed to fly up the center of the West Channel or East Channel on either side of Mercer Island. 20 s CITY OF RENTON Airport Compatible Land Use Program Due to the nature of the aircraft sound, the low level of flight, and sound transference over water, people are occasionally annoyed at the noise. Noise generated by aviation operations is a function of several factors; the characteristics of the airfield, the level of aviation operations, and the type of aircraft that uses the airport are the most notable of these. Airport noise has been subject to federal regulation since the Aviation Safety and Noise Abatement Act of 1979 set the standard for determining what are acceptable levels for airport noise. It also adopted a single method of measurement from several that are commonly used. The Annual Day-Night Average Sound Level ' (DNL) incorporates the consideration that noise is more disturbing at night when ambient noise levels are reduced. DNL measurements average all sound events and do their duration over a 24-hour period, averaged over a year. A penalty is assessed for nighttime sounds. DNL has been adopted by all federal agencies in assessing the impact of airport noise and complies with National Environmental Protection Act requirements. The FAA uses the threshold of 65 DNL as the determinant in recommending communities to consider noise abatement programs. Those that experience noise levels of 65 DNL or more are considered to be negatively impacted by airport noise. Exhibit I shows noise contours for the Renton Airport. These estimates were derived from a study of aviation noise associated with the Renton Airport(Airport Noise White Paper, Prepared by Hanson Professional Services Inc. and Spiegel and McDiarmid for the City of Renton Airport Advisory Committee,November 2001). The study utilized the FAA's Integrated Noise Model. The model simulates noise around the airport generated by aviation activity. The fleet mix used for the noise study was considered representative of the type of aircraft that uses the Renton Airport. It included the Boeing 737 and 757, a Beech Baron, a DeHavilland Dash 6,noise characteristics of single engine piston planes represented by a composite, and noise simulated by a Sikorsky 5-76 helicopter. Based on this study, the report concluded that Renton does not have a cumulative noise problem and noise impacts from aviation activity is expected to remain •• moderate (no significant increase over current levels) over the next several decades. The only area outside of the airport that is expected to be affected by the 65 DNL noise contour is the Cedar River Trail (City of Renton linear park on the east side of the Cedar River) at 65 to 70 or 75 DNL (depending on location) and a small area of land adjacent to the trail on Boeing property at 65 to 70 DNL. 21 As CITY OF RENTON Airport Compatible Land Use Program The FAA has classified land uses by compatibility based on Part 150 Noise Compatibility Planning Program guidelines (also under the Aviation Safety and Noise Abatement Act of 1979). According to the FAA and based on the increased noise estimates of 2015, outdoor music events located between the 65 and 70 DNL would not be compatible and residential uses located between the 65 and 70 DNL " would not be compatible without mitigation. Schools, hospitals, nursing homes, churches, auditoriums, farming, mining and extraction [of natural resources], and outdoor sports would only be compatible with noise reduction measures. r Residential uses, outdoor music, and zoos located in the 75 —80 DNL area would not be compatible with or without mitigation. All other uses would only be compatible with noise reduction measures. In addition to federal noise abatement regulations, the FAA endorses voluntary ' efforts as more effective than additional, new regulation. The Renton Airport Advisory Commission has worked to develop and adopt a voluntary noise Im abatement program that is proving successful (see Overflight section below for discussion of the "Voluntary Noise Abatement Procedures"). This option,however, is somewhat limited due to the congested airspace above Renton and the high IN number of itinerant pilots that use the Renton Airport. The Boeing Company has also initiated the "Fly Quiet"Program(see Overflight discussion section below). r 5. Strategies to Meet Objective: Policy Development Standard Prohibit the location of noise-sensitive Limit potentially noise-sensitive land uses from areas of high noise levels. land uses from locating within the 65 DNL (or higher)noise contour ,. of the Renton Municipal Airport. Within the Airport Influence Area, Require disclosure notice be placed require disclosure notice for potential on land title when property is negative impacts from aviation operation subdivided, or as part of approval noise, unless mitigated by other of conditional use permits, special .. measures. use permits, building permits, or other SEPA non-exempt projects. Such notice may relate to noise, low overhead flights, aviation operations that create high levels of noise, or aviation operations at night when there is greater sensitivity to noise. 22 .. CITY OF RENTON Airport Compatible Land Use Program Residential use and/or residential density Residential use or residential may be limited, when deemed necessary, density shall be limited based on to reduce negative impacts on residents recommended safety zones and on from aviation operation noise. recommendations in Safety Compatibility Criteria Guidelines— Land Use Densities and Intensities (California Airport Land Use Planning Handbook, January r 2002). Non-residential use and/or intensity may Non-residential use and/or intensity be limited, if such uses are deemed to be shall be limited based on noise sensitive, to reduce negative impacts recommended safety zones and on on users from aviation operation noise. recommendations in Safety Compatibility Criteria Guidelines— Land Use Densities and Intensities (California Airport Land Use Planning Handbook, January 2002). Approval of residential land use or other It is recommended that avigation land uses where noise-sensitive activities easements and restrictive covenants may occur should require dedication of should read as follows: avigation easements and use of acoustic "...By virtue of this easement, the materials (i.e. insulation, sound grantor, for and on behalf of attenuating window glass) for structures. himself and all successors in .. interest to any and all of the real property above described, waives, as to the public authority only, any and all claims for damage of any kind whatsoever as a result of aircraft using the "Navigable �• Airspace" granted herein. This easement does not grant or convey any surface use rights, nor is it to be construed to grant any right to private persons or corporations..." The notice may include the following disclosure: "This property may be subject to considerable noise form the operation of aircraft and is exposed at times to aircraft noise which may infringe upon a person's enjoyment do of property and may, dependent 23 CITY OF RENTON Airport Compatible Land Use Program do upon the degree of acoustical treatment of the building, affect their health and/or well being." "Any building constructed on the premise shall be so designed and constructed as to minimize aviation noise pollution in any such structure, giving due consideration to the use for which such structure is designed and built. This covenant is for the benefit of and pass with said property and shall apply to and bind the successors in interest and any owner thereof." Encourage master planning of land to Within the Airport Influence Area, increase land use compatibility through master planning can increase land sound attenuation in the environment. use compatibility through utilization of outdoor sound dM attenuation techniques, such as: • Place uses with highest sensitivity to noise at greater .. distances, in consideration of the factor of distance from the source. • Consider creation of micro- climates to utilize mitigating meteorological conditions (i.e. air temperature, wind direction and i velocity). • Create soft ground surfaces, such as vegetative ground cover,rather than hard surfaces. • Provide at appropriate heights structures, terrain, or other barriers to rovide attenuation of sound. D. Overflight 1. Compatibility Objective: In the Airport Influence Area, address impacts of ® overflight that are disruptive. 24 CITY OF RENTON Airport Compatible Land Use Program 2. Criteria: Criteria should be based on Renton Airport management and staff experience and knowledge of the issue and perceived areas of sensitivity within the City. 3. Measurement: Flight patterns over the City,particularly where aircraft enter and leave the flight pattern, are the primary areas of concern from overflight impacts. Measurement of overflight sound is technologically possible,but since the level of annoyance is frequently a personal matter among individuals, official complaints via telephone calls, written or electronic messages can provide measurement of sensitivity. 4. Discussion: "Overflight" is defined as "any distinctly visible and audible passage of an aircraft in flight, not necessarily directly overhead."( ) Overflight issues are several; annoyance from noise,vibration, etc., fear of aviation incidents, and potential trespass. Noise from aircraft overflight is distinguished from noise that is measured by .. contour lines in close proximity to the airport. Due to flight patterns, the impacts from overflight may be felt a considerable distance from the airport and may, due to low flight altitude, have measurements comparable to those adjacent to the airport. Impacts from overflight, usually noise, but in some cases visual contact are, like s other aviation impacts,based on the perception people have of the situation and range from annoyance to fear. Overflight noise may generate complaints because it is loud, or it may be annoying merely because it is audible at a place where silence is expected. The sound of a low-flying airplane or seeing it at what may seem like a dangerously low altitude may cause fear. Because of the nature of overflight, land use decisions in built-up, urban areas have little influence in mitigating impacts. Aviation industry procedures and flight patterns have the potential to alleviate some negative impacts. The changing nature of aircraft, development of quieter engines for example, is another possible source of relief. .. Although compatible land use planning is least effective when considering overflight impacts it is important to understand the issue. Therefore, this discussion will be used to further define the issue and how Renton, in particular, is impacted •• by overflights. Renton Airport flight patterns for arrivals and departures (exhibit J) are routes of frequent flights over the City that may result in annoyance from increased noise levels experienced on an occasional basis. In Renton, overflight impacts from aircraft using the Renton Airport are primarily a concern east(Renton Hill), and north (Kennydale) of the Urban Center. 25 CITY OF RENTON Airport Compatible Land Use Program The Renton Municipal Airport promotes Voluntary Noise Abatement Procedures. These include procedures for all aircraft using the Airport, including seaplanes and ' helicopters with the exception of large or turbine-powered aircraft. Large aircraft (12,500 lbs or greater) must adhere to provisions of FAR 91.129(e), which directs pilots of large turbine powered aircraft to fly at 1500 feet above ground level traffic pattern. The Renton Airport noise abatement procedures include the following suggestions, among others: • Aircraft with constant speed propeller should, when taking off,reduce propeller RPM when at a safe altitude at or below 700 feet. The propeller RPM may be increased when clear of noise sensitive areas or when at 2,000 feet. When approaching to land,propeller should not be increased to full RPM until the power has been reduced for final approach. • When approach and landing, pilots should approach as high as practical at minimum power and propeller RPM. r • Pilots should avoid descent over Kennydale and Renton East Hill below 800 feet, turning before these areas or maintaining altitude, as necessary, to fly over them at or above 800 feet. • Helicopters arriving or departing should enter or depart the traffic pattern at 500 feet and '/i mile straight out from the airport. • Seaplanes should stay within the Seaplane Operations Area when landing, ,. taxiing, or taking off. Overflight impacts on the West Hill originate with Boeing Field-based aircraft. The .. east boundary of Boeing Field airspace is located just west of the Renton airport (exhibit B). [note: "Navigable airspace"or simply"airspace" is the area above minimum altitudes of flight combined with the area for safe landings and departures. Each airport has a defined area that is designated as its airspace.] The position of the axis of Boeing Field, which runs from northwest to southeast, puts approach and departure flights directly over central and south Renton. FAA radar-tracked flight paths indicate heavy traffic at relatively low altitudes (0 to 2000 feet above ground level) over a large area of the City of Renton (exhibits C and D). a Like the Renton Airport, Boeing Field has a voluntary noise abatement program. The "Fly Quiet"Program is based on a combination of providing information to pilots, citizens, and the control tower; ways to report flight deviations and methods of tracking pilots who do not follow recommended Fly Quiet procedures; and encouragement to the FAA to create routes away from residential areas. i A FAR Part 150 Study of Boeing Field aviation noise resulted in several recommendations related to overflight impacts. 26 CITY OF RENTON Airport Compatible Land Use Program A recommendation was made to shift the departure and arrival route currently over Magnolia to one that is over Elliott Bay. No recommendations address the situation that occurs over Renton, nor was Renton included in the report, although the study area included a portion of the City. "' The airspace for the Seattle Tacoma International Airport is also over the City of Renton (exhibit B). Following a FAR Part 150 Study, SeaTac received federal approval for funding its"Noise Remedy Program." Of the several noise relief projects, there is only one that could potentially reduce the impacts of SeaTac flights over Renton. SeaTac will evaluate expansion of the Flight Management System, an automated system used to keep aircraft on specific flight paths. This program could reduce flights over Renton, if such flights are recognized as having a negative impact on the City. The combination of simultaneous flights within Renton and SeaTac airspace with Boeing Field flights over Renton probably results in cumulative noise impacts in some areas of Renton. Strategies similar to those suggested for other types of impacts could possibly 4Mreduce impacts from overflights. Although not popular with sellers because it may reduce value, informing house-buyers of potential annoyance from overflights is one approach. This could be formal notification recorded on the title to property, or im advertising the situation informally. Low density, rural zoning is not feasible in urban areas, but zoning for multi-family 40 use may be preferable over single-family, detached uses because outdoor, open space is reduced on a per unit basis and each unit has fewer walls exposed to the outside, through which sound can travel. In areas where flights are at low altitudes or simultaneous, multiple flights overhead create high noise levels; acoustical treatment of houses may be appropriate. If funded by government programs, avigation easements should be obtained in return. Avigation easements are desired by airports to lessen responsibility and eliminate ,. the potential charge of trespass by overflight. A common summary of overflight in relation to trespass is from the Restatement of Torts, Section 159(2): .. "Flight by aircraft in the airspace above land of another is trespass if, but only if, (a) it enters into the immediate reaches of the airspace next to the land, and (b) it interferes substantially with the other's use and enjoyment of his land." In Renton, avigation easements would be useful in the area where aircraft are typically flying low to the ground(approach and departure areas). r 27 An CITY OF RENTON Airport Compatible Land Use Program Although avigation easements do not mitigate noise impacts, the recording of them further informs potential property owners of the possibility of disturbance from overflights. 5. Strategies to Meet Objective: Policy Development Standard At the time of land use approval (i.e. Avigation easements shall ensure subdivision) avigation easements should that aircraft using the Renton be granted to the City in areas of the City Airport are not trespassing on of Renton subject to negative aircraft private property. overflight impacts. At the time of land use approval (i.e. Recorded deed notices shall consist .� subdivision)deed notices should be of"buyer notification"that inform recorded in areas of the City of Renton prospective purchasers that the land subject to negative aircraft overflight subject to the notification may have impacts. impacts from noise, vibrations, fumes, and emissions. Establish a presence on noise-abatement The City of Renton shall notify review committees, or similar, and Seattle Tacoma International do notification of procedures at nearby Airport and King County airports that may have aircraft that impact International Airport managers that Renton. the City of Renton requests representation on boards, committees, etc., and notification of issues regarding flight patterns, .. overflights, and general aviation procedures, that may impact the City of Renton and its citizens. .. Inform Renton citizens of"noise Initiate community information complaint"procedures to follow for program and make complaint line reporting negative impacts from telephone numbers, addresses, and overflights associated with not only electronic complaint forms Renton Airport, but also Seattle Tacoma available. International Airport and King County International Airport. 28 CITY OF RENTON Airport Compatible Land Use Program VIII. Airport Compatible Land Use Program Review and Revision A. Mandatory Review Schedule Due to several factors pertinent at the time of adoption of this program, such as on-going transition within the ACLUP area including pending changes in Boeing Company operations, and inevitable changes within the aviation industry,periodic review of the ACLUP will be necessary to ensure its continuing effectiveness and relevancy. Adoption of the ACLUP includes mandatory initial assessment of effectiveness in 2006, with subsequent mandatory review in 2011 (following expiration of The Boeing company's airport lease in 2010). s The scheduling of these mandatory review dates does not preclude intermediate review as necessary. B. Revision Procedure Amendments of the ACLUP may be necessary. If so,proposed amendments should be submitted to the Economic Development,Neighborhoods, and Strategic Planning Department IX. Conclusion The intention of the City of Renton, in developing an Airport Compatible Land Use Program, is to ensure the economic viability of the Renton Municipal Airport and improve quality of life for Renton citizens. do .. 29 .. Exhibits •• A. Renton Municipal Airport (aerial photograph) B. Renton Municipal Airport, Boeing Field(King County International Airport), and Seattle Tacoma(SeaTac) International Airport airspace maps C. North flow radar flight tracks (King County International Airport), Consultant: Barnard Dunkelberg& Company, FAR Part 150 Study. D. South flow radar flight tracks (King County International Airport), Consultant: Barnard Dunkelberg& Company, FAR Part 150 Study. E. Renton Municipal Airport safety zones map and Airport Influence Area map F. Basic safety compatibility qualities from"California Airport Land Use Planning Handbook;" State of California Department of Transportation, Division of Aeronautics; January 2002 G. Safety compatibility criteria guidelines—land use densities and intensities from "California Airport Land Use Planning Handbook;" State of California Department of Transportation, Division of Aeronautics; January 2002 H. Federal Aviation Regulations Part 77 Surfaces 1. Renton Municipal Airport Annual Average Noise Exposure for year 2015 (Day- Night Average sound Level) from"Airport Noise White Paper," Prepared by Hanson Professional Services Inc. and Spiegel and McDiarmid for the City of Renton Airport Advisory Committee,November 16, 2001 J. Renton Municipal Airport Flight Patterns dW R: ° ^'»�. `3 t �.r -�,.. .fit u • � ` �l ry .1 s ti i—c Exhibit Renton1 Airport 1 RogersWill 1 1rial Seaplane Base 2003 s _.. 620 _ Renton o ' - Munici Boei ort Fiel Sea-Tac 16] i8 5 Exhibit B Renton Municipal Airport, King County International Airport (Boeing Field), .. and Seattle Tacoma (SeaTac) International Airport Airspace ` J � r ! y l^•.,�� AAs, '� .> r 1 dO As an ri V Exhibit C King County International Airport North Flow Radar Flight Tracks Consultant: Barnard Dunkelberg & Co, FAR Part 150 Study 1 i. i I ' i i�'�� r� ���`y tV t`�✓�� \�\,, "ifs:. f, � �`�LJ -d{1 f. ..J 1 _— r � r � i` ,i�t14y� -r i• Z z Exhibit D King County International Airport South Flow Radar Flight Tracks Consultant: Barnard Dunkelberg & Co, FAR Part 150 Study ELaL y _ ``-Ion-�-�� jIf ail SI = JV J is 'U x: 5 \�( x =. 76m[250ftj 305m[1000ft] if s i.me s i 1524m[1 5000ft , RPZ i y� a� 107rri t350ft] — 0' I 853m 2800ft] 2 ;'/ _fie,. \ s _ O vc o T 13721, [R4500ftJJ 914m 3000ft 4- - C � L —t s 1 Si Safety Compatibility Zones (!)Runway Protection Zone ®Outer Approach/Departure Zone Area of Airport Compatible Land Use Program(also known as ( Inner Approach/Departure Zone(5 Sideline Approach/Departure Zone 'Airport Influence Area') Q Inner Turning Zone ©Traffic Pattern Zone (60 degree sector) a Exhibit E Airport Influence Area and Safety Compatibility Zones Data Source: NTSB accident investigations 1984-1991. Illustration Source: Hodges and Shutt, Institute of Transportation Studies, University of California, Berkley, 1993. EXHIBIT F Basic Safety Compatibility Qualities Zone 1: Runway Protection Zone Risk Factors/Runway Proximity • Very high risk • Runway Protection Zone (RPZ) as defined by FAA criteria Basic Compatibility Qualities • Airport ownership of property encouraged • Prohibit all new structures • Prohibit residential land uses • Avoid nonresidential uses except if very low intensity in character and confined to the sides and outer end of the area Zone 2: Inner Approach/Departure Zone Risk Factors/Runway Proximity • Substantial risk: Runway Protection Zones together with inner safety zones encompass 30%to 50% of near-airport aircraft accident sites (air carrier and general aviation) • Zone extends beyond and, if RPZ is narrow, along sides of RPZ .. • Encompasses areas overflown at low altitudes—typically only 200 to 400 feet above runway elevation ... Basic Compatibility Qualities • Prohibit residential uses except on large, agricultural parcels • Limit nonresidential uses to activities which attract few people (uses such as shopping centers, most eating establishments, theaters, meeting halls, multi-story office buildings, and labor-intensive manufacturing plants unacceptable) • Prohibit children's schools, day care centers, hospitals, nursing homes • Prohibit hazardous uses (e.g. aboveground bulk fuel storage) Zone 3: Inner Turning Zone Risk Factors/Runway Proximity ,. • Zone primarily applicable to general aviation airports • Encompasses locations where aircraft are typically turning from the base to final approach legs of the standard traffic pattern and are descending from traffic pattern .. altitude • Zone also includes the area where departing aircraft normally complete the transition from takeoff power and flap settings to a climb mode and have begun to turn to their en route heading r From: California Airport Land Use Planning Handbook(January 2002) Basic Compatibility Qualities • Limit residential uses to very low densities (if not deemed unacceptable because of noise) •• • Avoid nonresidential uses having moderate or higher usage intensities (e.g., major shopping centers, fast food restaurants, theaters, meeting halls, buildings with more than three aboveground habitable floors are generally unacceptable) • Prohibit children's schools, large day care centers, hospitals, nursing homes • Avoid hazardous uses (e.g. aboveground bulk fuel storage) Zone 4: Outer Approach/Departure Zone Risk Factors/Runway Proximity • Situated along extended runway centerline beyond Zone 3 • Approaching aircraft usually at less than traffic pattern altitude • Particularly applicable for busy general aviation runways (because of elongated traffic pattern), runways with straight-in instrument approach procedures, and other runways where straight-in or straight-out flight paths are common .. • Zone can be reduced in size or eliminated for runways with very-low activity levels Basic Compatibility Qualities • In undeveloped areas, limit residential uses to very low densities (if not deemed unacceptable because of noise); if alternative uses are impractical, allow higher densities as infill in urban areas • Limit nonresidential uses as in Zone 3 • Prohibit children's schools, large day care centers, hospitals, nursing homes Zone 5: Sideline Zone Risk Factors/Runway Proximity • Encompasses close-in area lateral to runways • Area not normally overflown; primary risk is with aircraft (especially twin engine) �,. losing directional control on takeoff • Area is on airport property at most airports •• Basic Compatibility Qualities • Avoid residential uses unless airport related (noise usually also a factor) • Allow all common aviation-related activities provided that height-limit criteria are met • Limit other nonresidential uses similarly to Zone 3, but with slightly higher usage intensities • Prohibit children's schools, large day care centers, hospitals, nursing homes r IM .. Zone 6: Traffic Pattern Zone Risk Factors/Runway Proximity • Generally low likelihood of accident occurrence at most airports; risk concern primarily is with uses for which potential consequences are severe • Zone includes all other portions of regular traffic patterns and pattern entry routes Basic Compatibility Qualities • Allow residential uses Allow most nonresidential uses; prohibit outdoor stadiums, and similar uses with very high intensities r • Avoid children's schools, large day care centers, hospitals, nursing homes Definitions As used in this table, the following meanings are intended: • Allow: Use is acceptable #. • Limit: Use is acceptable only if density/intensity restrictions are met • Avoid: Use generally should not be permitted unless no feasible alternative is available • Prohibit: Use should not be permitted under any circumstances • Children's Schools: Through grade 12 • Large Day Care Centers: Commercial facilities as defined in accordance with state law; for the purposes here, family day care homes and noncommercial facilities ancillary to a place of business are generally allowed. • Aboveground Bulk Storage of Fuel: Tank size greater than 6,000 gallons (this suggested criterion is based on Uniform Fire Code criteria which are more stringent for larger tank sizes) s a� 4M r EXHIBIT G Safety Compatibility Criteria Guidelines—Land Use Densities and Intensities MAXIMUM RESIDENTIAL DENSITY Safet Compatibility Zones' Current Setting (1) (2) (3) (4) (5) (6) Runway Inner Inner Outer Sideline Traffic Protection Approach/ Turning Approach/ Zone Pattern Zone Departure Zone Departure Zone Zone Zone Avera a number o dwellin units per gross acre Rural Farmland/ 0 Maintain current zoning if less than No limit Open Space Density criteria for rural/suburban setting (Minimal Development) Rural/Suburban (Mostly to 0 1 d.u. per 1 d.u.per 1 d.u.per 1 d.u. per No limit + Partially 10—20 ac. 2—5 ac. 2—5 ac. 1 —2 ac. Undeveloped) Urban ,o (Heavily 0 0 Allow infill at up to average No limit Developed) of surrounding residential areab 'Clustering to preserve open land encouraged in all zones. am b Infill is appropriate only if nonresidential uses are not feasible. MAXIMUM NONRESIDENTIAL DENSITY +� Safety Compatibility Zones Current Setting (1) (2) (3) (4) (5) (6) Runway Inner Inner Outer Sideline Traffic .. Protection Approach/ Turning Approach/ Zone Pattern Zone Departure Zone Departure Zone Zone Zone ,. Average number ofpeo le erross acre Rural Farmland/ Open Space Ob 10-25 60-80 60-80 80- 100 150 dW (Minimal Development) Rural/Suburban (Mostly to Partially Ob 25-40 60-80 60-80 80- 100 150 Undeveloped) Urban (Heavily Ob 40-60 80- 100 80- 100 100- 150 No limit' Developed) Multipliers for above numbers Maximum Number of People Per Single x 1.0 x 2.0 x 2.0 x 3.0 x 2.0 x 3.0 Acre Bonus for Special +� Risk-Reduction x 1.0 x 1.5 x 2.0 x 2.0 x 2.0 x 2.0 Bldg. Design 'Also see Exhibit C for guidelines regarding uses which should be prohibited regardless of usage intensity b Exceptions can be permitted for agricultural activities,roads,and automobile parking provided that FAA criteria are satisfied. Large stadiums and similar uses should be prohibited. d Multipliers are cumulative(e.g.maximum intensity per single acre in inner safety zone is 2.0 times the average intensity for the site,but with risk-reduction building design is 2.0 x 1.5=3.0 the average intensity). From: California Airport Land Use Planning Handbook(January 2002) r f f l I t ! 1 a a Note: This diagram is used to determine if proposed projects may affect airspace. In order to use this diagram, the latitude and Plan View longitude coordinates of the project must be determined,as well as the proposed height above ground level(AGL),site elevation above mean sea level (AMSL), total height (AMSL), and the location of the proposed project in relation to the Renton Municipal Airport. If analysis of the above information,in relation to the Part 77 diagram indicates that an obstruction to airspace may be created by the project, the Federal Aviation Administration(FAA)must be notified by means of FAA Form 7460-1,Notice of Proposed Construction or Alteration (available from the Federal Aviation Administration). Not to Scale Transitional Surface - Precision Instrurient Approach Surface I I /r ,^ Horizontal Surface -- Visual or Non-Precision j Approach Surface Corical Surface - - Primary Surface Isometric View 4 Exhibit H Federal Aviation Regulation Part 77, Objects Affecting Navigable Airspace ("Imaginary Surfaces") From: Denver Regional Council of Governments'Airport Compatible Land Use Design Handbook '—— rna aewm•m i. gaonm,o.•a•ni � nog o.o.o...a ..y a i�„a i is wwoao :ona rIli,macafuw'aa"oro„a =0 65 DNL 70 D N L I 75 DNL _T ... �� LU 00 i r 1 i lei H t Exhibit I Renton Municipal Airport Day/Night Average Sound Level (Expected Annual Average Noise Exposure for year 2015) Notes: The Day/Night Average Sound Level (DNL) takes into consideration the fact that noise is generally more significant at night when background, or ambient, noise levels are lower. DNL .. averages all sounds and their duration, looks at a 24-hour period, typically on an average day over the course of a year. A factor is assigned for flights between 10 pm and 7 am. The nighttime noise factor means that one night take-off or landing is equivalent to 10 daytime .. operations generating the same level of noise. The Federal Aviation Administration uses the threshold of 65 DNL as the point at which sound •• turns into noise. Below 65 DNL, background noise tends to obscure aircraft noise. The noise contours indicated in this illustration have been projected for the Renton Municipal • Airport for the year 2015, based on anticipated growth in aviation activity between 1997(date of Airport Master Plan) and 2015. r i D Noise Sensitive Areas s Boeing Field Airspace —�� North Flow --�-- South Flow r —fes 45`Entry Route 0 Exhibit J Renton Municipal Airport Flight Patterns Source: Renton Municipal Airport s ,. Resources 1. "2001 Regional Airport System Plan," Puget Sound Regional Council, August .. 2001. 2. "Airport Noise White Paper,"Prepared by Hanson Professional Services Inc. and •w Spiegel and McDiarmid for the City of Renton Airport Advisory Committee, November 16, 2001. +� 3. "Airports and Compatible Land Use, vol.1;"Washington State Department of Transportation, Aviation Division; February 1999. .. 4. "California Airport Land Use Planning Handbook;" State of California Department of Transportation, Division of Aeronautics; January 2002. 5. Leiss, William and Christine Chociolko; Risk and Responsibility; McGill- Queen's University Press; Montreal; 1994. 6. "Renton Municipal Airport Master Plan Update;" December 1988. 7. "Renton Municipal Airport and Will Rogers-Wiley Post Memorial Sea Plane Base Master Plan Update;" Bucher, Willis & Ratliff Corp.; August 1997. 8. "Renton Municipal Airport Business Plan;" Hanson Professional Services, Inc., do February 7, 2002. do • do r