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HomeMy WebLinkAboutAgenda - 06-07-2005-5ggORANGE COUNTY BOARD OF COMMISSIONERS ACTION AGENDA ITEM ABSTRACT Meeting Date: June 7, 2005 Action Agenda Item No. SUBJECT: Proposed County Noise Control Ordinance Revisions DEPARTMENT: Planning and Inspections PUBLIC HEARING: (YIN) No ATTACHMENT (S): • Proposed Noise Ordinance INFORMATION CONTACT: Craig N. Benedict, Director, ext 2592 Lindy Pendergrass, Sheriff, ext 2900 Glenn Bowles, Planner II, ext 2577 TELEPHONE NUMBERS: Hillsborough 732-8181 Chapel Hill 968-4501 Durham 688-7331 Mebane 336-227-2031 PURPOSE: To consider adoption of proposed revisions to the County noise control ordinance, BACKGROUND: The Board considered this item at its regular meeting on May 17, 2005. Questions and comments from that meeting are summarized at the end of this abstract and changes were incorporated into the ordinance as applicable. In recent years, a number of citizen complaints regarding noise have been received by the Sheriffs Office and the Planning Department. Most involve loud parties and music at private residences and gatherings, The present ordinance, which the Sheriffs Office enforces, does not adequately address certain situations, such as noise generated from recreational motorized vehicles (i.e., ATVs, motor bikes, go-carts, model boats and planes, and the like, which have generated citizen complaints), The situation is often not a technical matter, but rather a community problem - a nuisance for which a "reasonable neighbor" approach is emphasized. The proposed amendment addresses the following: 1, Adds definitions of "noise" and "unreasonably loud and disturbing noise", 2, Provides more detailed noise standards by adding specific prohibitions, 3, Clarifies that a noise may violate the ordinance in the following ways: • First, it may be a specifically prohibited noise activity including late night (after 9 pm) racing of a recreational motorized vehicle off-road, late night use of landscaping equipment, and late night non-emergency use of compression release engine or transmission braking systems of trucks and other vehicles. (Least inclusive of the types of sounds prohibited); or z • Second, it may be "unreasonably loud and disturbing noise," which is defined in the ordinance based upon a "reasonable neighbor" standard considering a number of objective factors such as whether the sound is from a utilitarian versus recreational source, the time of day, etc. (Medium inclusiveness of the types of sounds prohibited); or • Third, it may exceed the maximum noise limits of the ordinance because five readings of a noise meter indicate that the applicable maximum decibel levels have been exceeded, providing prima facie evidence of a violation. (Maximum inclusiveness of the types of sounds prohibited); or • A combination of the above. 4. Maximum noise levels set for evening hours in residential zones (receiving areas) are effective one (Friday/Saturday) or two (Monday-Thursday) hours earlier than in previous ordinance. 5. Establishes maximum noise levels for day and evening hours in commercial and industrial zones (receiving areas). 6. Sets forth a list of exempt activities, like noise from emergency vehicles and farm activity, 7. Clarifies that initial enforcement is based on a single warning given. 8. Maintains civil penalties and prescribes higher criminal penalties. The Planning Board briefly discussed this noise ordinance and citizen complaints at its October 6 meeting as a point of information to garner perspective on the issue. The Planning Board did not serve in a regulatory review role since the noise ordinance is a stand-alone ordinance and is not a "planning" regulation. Planning staff met and corresponded several times with members of the Sheriffs office and the County Attorney's office to prepare the proposed ordinance for presentation to the BOCC. The proposed ordinance amendment combines several of the defined terms, refines several others and adds a definition of "unreasonably loud and disrupting noise". It adds a new Article on specific noises prohibited. Maximum noise level times are adjusted, and protocols are established for the measurement of offending noise. The listing of exceptions was increased by adding bona fide farming activities, non-amplified crowd noise, trains and associated rolling stock, governmental activities, utility repairs, slating, legal discharge of firearms, and recycling and refuse collections. The methods the Sheriffs Office will employ to enforce the ordinance are elaborated upon, including providing for an initial warning, and criminal penalties are increased to be in line with the appropriate state standards. COMMENTS FROM THE NOVEMBER 22, 2004 PUBLIC HEARING: Planning Director Benedict reviewed comments about the noise control ordinance, which has been around for some twenty years. There have been occasional revisions as new technology comes on line. Community complaints about noise came from a variety of activities. We realize from the enforcement of the noise ordinance and its interpretations that there are different aspects of the ordinance that may need additional clarity. The six areas of proposed ordinance revisions include new definitions, standards, noise measurement protocols, exempted activities with hours of operation, nuisance noise activities, and greater penalties. Noise control is a general county ordinance, not in the Zoning Ordinance, which the Sheriffs Office enforces, The Sheriffs Office has experienced the various hours of complaint and the 2 nature of the noise complaints, The tables provided list the existing language, suggested alternatives and comments, Other examples of community noise control ordinances can provide better understanding of the local issue. Our existing noise standards are based on decibels, Up to 60 dB(A) is the standard between 8.00 a.m, and 11:00 p.m; up to 50 dB(A) from 11:00 p.m, to 8:00 a.m. The chart illustrates a range of decibel noise levels and general activities. There are three options. The first is a change the time or shorten the daytime periods when louder noise is permissible. The second is to lower the permissible noise levels, and the third may be a combination of the two. We are looking for input regarding what different time periods are acceptable which would reflect when typical construction noise happens. Other aspects include how and when noise readings are taken. The measurements are taken from the adjacent property, People should be able to enjoy any noise on their property so long as it does not intrude onto neighboring lands. A list of exceptions to the noise standards, with suggested clarifications is included along with additional language regarding registered vehicles with mufflers. Violation and penalty increases are suggested as are nuisance noises (utilitarian verses recreational noise). The zoning ordinance has performance standards on noise and vibration lJse Permit and hopefully the two noise standards will eventually match. Commissioner Comments: This discussion and public, hearing is the result of on-going concerns from county citizens and not a specific event, How would noise be measured? At the adjacent property line, four feet above the ground, ten feet from wall, barriers, or obstructions, Usually we have an ordinance available at the public hearing, Why isn't the proposed ordinance presented? We did not want to lock in at this time specific revisions, Rather, we are looking for input and guidance to shape the actual recommendations and bring back the recommendations to the Commissioners at another meeting. Do we have problems with the public hearing and the specifics of the proposed revisions? Revisions to the Noise Control Ordinance do not require a public hearing, The Commissioners have free reign to proceed on this matter, There are some problems with the definitions of noise, We should take the best of both suggested noise definitions, but start with the second definition. We should address the confusion and the different standards in the zoning ordinance, The higher standard would prevail and there would be consistency. We need a common sense definition, one that the normal person would know, What kind of enforcement history with a definition, for instance the one used in Durham County, have other communities experienced? The proposed methodology of taking 100 noise readings, each ten seconds apart would require nearly seventeen minutes, a significant amount of time, How would someone know? We need a a general definition, which the common person would know, and we should not increase the penalties, There is a problem with the references in Articles 5 and 6. The Sheriff commented that at this time, that they are not having a whole lot of problems with enforcement. Vehicles, laud music, and parties and things of that nature are the main concerns. The proposed changes will allow something with which the Sheriffs Office can work. Citizen Comments: Citizen #1, The terms "reasonable, " "detrimental," and the like are in the ear of the beholder and are not legal or often practical. The trucks on US 70 at Lawrence Road are prohibited from driving through the Town of Hillsborough, They gear down or are accelerating up the hill. There are up to fifteen trucks per hour traveling along the road, according a recent NCDOT traffic count. Remove the muffler provision exemption from the noise control ordinance. This will give citizens a vehicle far relief, Citizen #2. Support far the noise ordinance, but she does have problems with go-cart racing as late as 10 or 11:00 p,m. at night. Complaints on these activities have resulted in vandalism. With her awn noise meter, she took a reading of 77 dB(A) at her home from the go-carts. A lawn mower has a 68 dB(A) reading, The ordinance wculd help create a better quality of life, Citizen #3, Whaf is the process? When wil! the Commissioners consider the ordinance again? This is a public hearing. The Commissioners will direct staff to address the issues. Will the hearing be closed tonight? Is the proposed ordinance complaint driven and will the noise levels be raised? You should first give people warnings, how would they know they are causing a noise problem? Will you re- evaluate the ordinance in twelve months? The ordinance is complaint driven and a citizen would call the sheriffs office. Staff will re-evaluate the ordinance every five to seven years, as new technology emerges. Citizen #4. He is a motor cross racer. People move to the country because that is where we can make noise. We cannot race in the city, Will the measurement be made at a property line where nobody lives? We do not want to hurt anybody, Citizen #5. Generally supports the ordinance. Refuse trucks in the neighborhood in the very early morning. Would hope that 7:00 a.m. would be the standard for such activities in residential neighborhoods, A number of state NCDOT pre-emption issues, particularly safety requirements will be reviewed by the attorney's office, According to the County Attorney, the County cannot regulate in areas the state has pre-empted. Truck equipment and muffling regulations are state safety laws. There is a difference between regulating sound on private property and regulating sound on the NCDOT streets. 4 It may be a good idea to use the reasonable person standard with a minimum sound threshold. If the court said this is too vague, then we can provide another option. Noise control must address good neighborliness and the reasonable use of leaf blowers, lawn mowers, and the like, One measure is whether the noise is utilitarian or recreational. The public hearing is now closed, COMMENTS FROM THE MAY 17, 2005 MEETING Gene Poveromo (citizen). He would hope that the Board is open to revisit the issues in one year, Commissioner Gordon: Why are there criminal penalties? The County Attorney answered that all violations of County law are misdemeanors, but with different penalties, Sometime civil penalties are effective, sometimes criminal, and sometimes both are effective. Commissioner Halkiotis: What are the noise levels for the chiller at the Whiffed Center? Commissioner Jacobs: What is a Type 3 sound level meter? Answer: According to staff at Quest Technologies, a vendor of sound level equipment, the difference is the tolerances. Type one meters have tighter tolerances and Type 3 have lower tolerances. The differences between the different types are the microphone (receiver) and the tolerances include temperature, frequency response, and the linearity, Type 3 meters are more tolerant of field conditions normally experienced within the community, Is the ordinance enforceable as we have structured it? The County Attorney answered that we have no experience, We will just have to see , but I think it will help. Changes to the ordinance text include "cleaning up" some grammatical errors requested by Commissioner Foushee, inserting the ward "motor" before "vehicles" in subsection 3 on page 8, and substituting the ward "appropriate" for "Orange County" in the title of the table on page 9. FINANCIAL IMPACT: No financial impact at this time with human resources being used from existing department staffs, RECOMMENDATION: The Administration recommends that the Board adopt the amended noise control ordinance, G A RESOLUTION AND ORDINANCE TO PROVIDE FOR THE CONTROL OF NOISE IN ORANGE COUNTY WHEREAS, excessive noise is a serious hazard to the public health and welfare and the quality of life in rural and developing areas of Orange Ccunty; and, WHEREAS, a substantial body of science and technology exists by which excessive noise can be substantially abated without serious inconvenience to the public; and, WHEREAS, certain ncise producing equipment in this community is essential tc the quality of life in a rural environment and should be allowed to continue at reasonable levels and hours with moderate regulation; and, WHEREAS, each person has the right to an environment reasonably free from noise which jeopardizes health, welfare, or which unduly interferes with a property owner's right to the use or enjoyment of their property; and, WHEREAS, it is recognized that residential land uses are more noise-sensitive than commercial and industrial land uses; and, WHEREAS, it is the declared policy of Orange County to promote an environment free from excessive noise, otherwise properly called "noise pollution", which unnecessarily jeopardizes the health and welfare and degrades the quality of the lives of the residents of this community, without unduly prohibiting, limiting or otherwise regulating the function of certain noise-producing sources which are not amenable to such controls and yet are essential to the economy and quality of life of the community. NOW THEREFORE, pursuant to the authority provided in N.C. General Statute § 153A-121, § 153A-123 and § 153A-133, the Board of Commissioners of Orange County hereby resclves and ordains as follows: Article I: Definitions In addition to the common meaning of words, the following definitions shall be used in interpreting this Ordinance. {~ ANSI Standards: American National Standards Institute (ANSI) Publication ANSI, S1,4-1997 or the latest approved version thereof. (2) "A" weighting scale: The sound pressure level in decibels as measured with a sound level meter using the "A" weighted network (abbreviated as "d6(A)"), as defined by the ANSI Standards). "A" weighting de-emphasizes the very low and very high frequency components of sound in a manner similar to the response of the human ear, (3) dg(A): Sound level in decibels determined by the "A" weighting scale, (4) Decibel: A unit of or level used to measure sound intensity, equal to the logarithm of the ratio of the intensity of the sound to a reference pressure. (5) Impact Sound; Sound that occurs intermittently rather than continuously. (6) Motor Vehicle: Any motor vehicle as defined by N.C. Gen. Statutes § 20- 4,01(23), or its successor Statute. (7) Noise: Includes any sound or source of sound prohibited by Article II of this Ordinance, or any Unreasonably Laud and Disturbing Noise as defined herein and prohibited by subsection (1) of Article III of this Ordinance, or any sound that exceeds the maximum permissible sound levels set by subsection (2) of Article III and measured as set forth in Article IV of this Ordinance, (8) Person: Any individual, association, firm, partnership, corporation or business entity, (9) Receiving_Land: Property that receives the transmission of noise or other sound that is generated on other property, (10) Amplified: Any increase of sound by the use of mechanical or electronic equipment. (11) Sound Level: In decibels, a weighted sound pressure level on the "A" weighting scale determined by the use of a sound level meter whose characteristics and frequency weightings are specified in the ANSI Standards, (12) Sound Level Meter: Any type three instrument certified to meet or exceed ANSI Standards, which includes an omni-directional microphone, an output meter and frequency weighting network(s), and other mechanisms for the measurement of sound level, (13) Unreasonably Loud and Disturbinq Noise: Any sound which is substantially incompatible with the time and location where created, and which is perceived by a person of ordinary sensibilities as interrupting the normal peace and calm of the receiving land, The following factors incident to unreasonably loud and disturbing noise shall be considered: time of day; proximity to residential structures; whether the sound is recurrent, 8 intermittent or constant; the volume and intensity; whether the sound has been amplified in volume or range; the character and zoning of the area, including the receiving land; whether the sound is related to recreational or utilitarian activities normally associated with the use of property or the normal operation of a business or other labor activity; whether the sound is subject to being controlled without unreasonable effort or expense to the creation thereof. Article II: Specific Prohibitions It shall be unlawful to carry on the following activities in any part of the unincorporated areas of Orange County that is zoned far residential use (as defined in the Orange County Zoning Ordinance), or within three hundred (300) feet of any structure used as a residence (other than the residence of a person involved in the activity) in an unincorporated area of Orange County regardless of its zoning classification. (1) Operate or permit the operation of any recreational motorized vehicle between the hours of 9 pm and 8 am, if the vehicle is being driven off-road for racing. This section shall apply to all non-commercial off-road racing of recreational motorized vehicles, whether or not self-propelled or duly licensed or registered, including racing vehicles, motorcycles, go-carts, snowmobiles and motor boats except when any of the foregoing is operated in association with hunting or fishing, or permitted commercial racetracks or other permitted commercial use of property. (2) Operate lawn mowers, chainsaws and other landscaping and domestic equipment outdoors between the hours of 9 pm and 7 am. (3) Using the compression release engine or transmission breaking system of motor vehicles between the hours of 9 pm and 8 am in non-emergency circumstances. Article III. Maximum Permissible Standards by Receiving Land (1) It shall be unlawful for any person to make, create, permit, or to continue any source of unreasonably loud and disturbing noise in Orange County. 9 (2) Any continuous, regular, frequent, or intermittent source of sound produced by any activity shall be limited to the following maximum permissible sound levels according to the time of day and zoning category of the receiving land as stated in Table I below when measured as specified in Article IV. TABLE I: Sound Levels dB(a) by Receiving Land Zoning Category as Defined by the Appropriate Zoning Ordinance MAXIMUM DECIBEL (dB(A)) LEVELS MAXIMUM DECIBEL (dB(A)) LEVELS Receiving Land DURING THE FOLLOWING HOURS DURING THE FOLLOWING HOURS Zoning OF DAY: OF EVENING: Category Sunday -Thursday 8 am - 9 pm Sunday -Thursday 9 pm - 8 am Friday & Saturday 8 am -11 pm Friday & Saturday 11 pm - 8 am Residential or Planned Development 60 dB(A) 50 dB(A) Having a Residential Component Commercial 65 d6(A) 55 dB(A) Industrial 70 dB(A) 60 d6(A) Article IV: Sound Measurement Standards Standards, instrumentation, and measurement procedures to be used in the measurement of sound as provided for in this Ordinance are as follows: (1) Sound level measurement shall be made with a sound level meter using the "A" weighting scale set on "slow response," except for measurements of impact sound, set on "slow response. Impact sound shall be measured using the fast response of the sound level meter. (2) The entire sound measurement system shall be serviced and operated as recommended by the manufacturer. Any officer authorized to enforce this Ordinance shall be trained in the use of sound level measurement and the operation of sound level meters. (3) Except in the case where noises are emanating from within multi-family structures and the complainant is a resident of the same multi-family to structure, noise measurements shall be taken at the corner of the primary structure of the complainant nearest the noise source but when this location is not practical noise measurements shall be made at the boundary of the public or private right-of-way which adjoins the complainants' property, (4) In the case of noises emanating from within amulti-family structure and where a complainant is a resident of the same multi••family structure, noise measurements shall be made in the unit of complainant at a height of at least four (4) feet above the floor and at a point approximately equidistant from all walls. (5) No individual other than the Officer operating the meter shall be within ten (1 Q) feet of the meter during the sample period, (6) The meter shall be calibrated immediately before use and recalibrated after use. (7) The Officer operating the meter shall face the noise source and record the meter's instantaneous response observed at consecutive ten (1Q) second periods. The sound meter operator may cease taking readings as soon as the readings already taken show a violation of this Ordinance, Five readings above the allowed decibel limits as specified in subsection (2) of Article III attributed to the sound source or sources shall constitute prima facie evidence of a violation of the maximum permissible sound levels set in this Ordinance, Article V: Exceptions The following are exempt from the provisions of this Ordinance: (1) Construction operations from 7 a.m. to 9 p.m, on weekdays and 8 a.m. to 9 p,m, on weekends for which any required building permits have been issued,; provided all equipment is operated according to the manufacturers' specifications and with all standard equipment, manufacturers' mufflers and noise reducing equipment are in use and in proper operating condition.. (2) Noises of safety signals, warning devices, emergency pressure relief valves and church bells or chimes. (3) Noises resulting from any authorized emergency vehicle when responding to any emergency call or acting in time of emergency. 11 (4) Non-amplified noises at street activity (such as fairs or parades) where the participants have a permit, if a permit is required bylaw for such activity. (5) Agricultural or forestry activities from bona fide farming and forestry operations when equipment or machinery is operated in accordance with manufacturer's specifications and with all standard noise reducing equipment in place and in good working order. (6) All noises coming from the normal and legal operation of properly equipped aircraft (not including scale model aircraft). (7) All noises coming from normal operation of motor vehicles properly equipped with a standard mufflers, in goad working order and in constant operation, including noises coming from compression release engine or transmission breaking systems when used in emergency circumstances. (8) Noise from lawful fireworks and noisemakers on holidays. (9) Lawn mowers, chainsaws and other landscaping equipment used between 7 am and 9 pm when operated with all the manufacturers' standard noise reducing mufflers in use and in proper operating condition. (10)Non-amplified crowd noise at regularly scheduled athletic events at county parks, and public or private schools. (11)Non-amplified speeches made from a fixed location in non-residential property. (12) Trains and associated rolling stock. (13) Activities by government personnel in the performance of their duties, including without limitation the armed forces and law enforcement personnel. (14) Sound or noise emanating from construction or repair work and regulated activities of utilities regulated by the North Carolina Utilities Commission. (15) Blasting, but only as permitted by State law and County regulations. (16) Commercial race tracks, as permitted by State law and County regulations. (17) Discharge of firearms, but only as permitted by State law and County regulations. (18) Refuse and recycling collection vehicles when operated between the hours of 6 am and 9 pm according to the manufacturer's specifications and with all standard noise reducing equipment in place and in proper condition 12 Article VI: Burden of Proof Regarding Exceptions In any proceeding based upon this ordinance, if an exception stated in this ordinance would limit obligation, limit liability, or eliminate either an obligation or liability, the person whom would benefit from the application of the exception shall have the burden of proving that the exception applies and that the terms of the exception have been met. Article VII: Violations and Penalties (1) Violations (a) The Orange County Sheriff shall be responsible for the enforcement of this Ordinance, including responding to complaints concerning possible noise, such as specifically prohibited noise and unreasonably loud and disturbing noise, determining noise level violations of this Ordinance and issuing of warnings or notices as provided far in this Article. (b) Upon his or her determination that there is probable cause to believe that a violation of this Ordinance has occurred, the Orange County Sheriff shall determine the source of the noise and the person responsible for it and promptly notify the person responsible for the noise of the fact that a violation has occurred, (c) Any person or persons violating this Ordinance shall be first warned of the unlawfulness of such noise activity and be given a reasonable opportunity to peacefully disperse, discontinue or to abate such noise condition prior to being subject to further enforcement action. Not more than one warning shall be given far a violation, and additional warnings will not be given for a continuing violation. (d) Failure on the part of the person or persons responsible to timely comply with the Sheriffs directive to eliminate the violation or to otherwise abate the violation, after notification, shall constitute a violation of this Ordinance, (e) An arrest, citation or complaint for the violation of any part of this Ordinance must be based on probable cause arising from objective evidence of the following: 1.3 1) A specifically prohibited noise identified in Article II of this Ordinance, (Provides minimum noise protection and the least inclusiveness of the types of noises prohibited); and/or 2) Physical sense perceptions and observations of unreasonably loud and disturbing noise as defined in, and proscribed in subsection (1) of Article III of, this Ordinance, at the time and place such is occurring (Provides intermediate noise protection and intermediate inclusiveness of the types of noises prohibited); and/or 3) Noise that exceeds the maximum permissible sound levels prescribed in subsection (2) of Article III of this Ordinance (Provides maximum noise protection and maximum inclusiveness of the types of noises prohibited); and/or 4) Noise that violates any combination of the foregoing, (f) For purposes of this Ordinance the "Orange County Sheriff' shall include the Sheriff and any Deputy Sheriff of Orange County, (2) Civil Penalties (a) Any person violating any of the provisions of this ordinance shall be subject to a civil penalty of one hundred dollars ($100,00), Each day of a continuing violation shall constitute a separate violation under this subsection, (b) The County Manager, or his or her designee, shall be authorized to assess civil penalties under this Ordinance and shall make written demand for payment upon the person responsible for the violation and shall set forth in detail the violation for which the penalty has been invoked. If payment is not received or equitable settlement reached within sixty (60) days after demand for payment is made, the matter shall be referred to the County Attorney for institution of a civil action in the name of the County in the appropriate division of the General Court of Justice of Orange County for recovery of the penalty. Any sums recovered shall be used to carry out the purposes and requirements of this Ordinance, 14 (3) Criminal Penalties Any person who violates any provision of this Ordinance shall be deemed guilty of a Class 3 misdemeanor punishable by imprisonment not to exceed fifteen (15) days or by fine not to exceed five hundred ($500.00) dollars, or both. Each day of a continuing violation shall constitute a separate violation under this subsection. Article VIII: Severability If any provision of this Ordinance is adjudged invalid or if the application thereof to any person or in any circumstance is adjudged invalid, such invalidity shall not affect the validity of this Ordinance as a whole or of any part, subpart, sentence ar clause thereof not adjudged invalid. Article XIX: Abrogation This Ordinance repeals the existing Orange County Noise Ordinance adopted August 15, 1983, as amended on February 1, 1988. This Ordinance is not intended to repeal, abrogate or impair any greater restrictions imposed by any other State law or local government ordinance or any existing easements, covenants, or deed restrictions. Wherever the provisions of any other law, ordinance, er regulation or restriction impose higher standards than are required by the provisions of this Ordinance, this Ordinance does not prohibit the enforcement of any such law, ordinance, regulation or restriction. Article XIII: Effective Date This Ordinance shall be effective upon adoption. Adopted this the day of 2005, upon motion of Commissioner ,seconded by Commissioner