SUPPORTS ITEM NO. 2
P&E COMMITTEE AGENDA
JUNE 29, 1995
POLICY REPORT
ENVIRONMENT
Date: May 29, 1995
Dept. File No.: CC17/95
TO: Standing Committee on Planning and Environment
FROM: Director of Environmental Health
SUBJECT: B.C. Place Stadium - Noise From Concerts and
Truck and Tractor Pull Events
CONSIDERATION
A. THAT Council amend section 14(A), Council Authorized Event
Exempt, to include an exemption for a specific number and type
of events at B.C. Place Stadium; i.e. concerts and a truck and
tractor pull.
OR
B. THAT Council not amend the Noise By-law but require the
operator of B.C. Place Stadium to apply for Mayoral Exemption
under Section 17 on an event by event basis.
AND
RECOMMENDATION
C. THAT B.C. Place Stadium be requested to institute whatever
noise abatement measures are practical, within the stadium
complex.
D. THAT City staff and the developers of sites near B.C. Place
Stadium be instructed to continue to make noise mitigation a
key design consideration for residential buildings through the
rezoning and development permit processes.
MANAGER'S COMMENTS
The General Manager of Community Services believes that
Recommendation A will contribute to a planned, consistent and
systematic protocol for dealing with noisy events. This is likely
to be more effective than the ad hoc approach of Recommendation B,
which will lead to a new set of negotiations for every "unique"
event. The General Manager of Community Services RECOMMENDS A, C,
and D.
COUNCIL POLICY
The Vancouver Noise By-law 6555, as amended from time to time, regulates
the generation of noise within the City.
PURPOSE
This report has been written to deal with the noise emanating from B.C.
Place Stadium. The noise from certain events being staged at the
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stadium could have an impact on the new residences being built in close
proximity to the stadium. It has been determined that the noises
produced by the Truck and Tractor Pull and live concerts could have the
greatest impact.
BACKGROUND
B.C. Place Stadium was completed in 1983, and since that time has been
home to a variety of events. At the time of its completion, and until
now, the stadium was located in an area that was surrounded by a
majority of industrial and commercial use buildings, with a small
percentage of residential apartments.
This make-up will change over the next decade, as the construction of a
number of multi-family high-rise buildings in the area close to the
stadium are completed and occupied. Even though noise attenuation is a
requirement in the design of these buildings, (double glazing, design
and placement of occupied spaces and shielding buildings), the noise
from certain events may result in complaints from the new residents.
The Health Department has taken noise readings at the majority of the
high-noise events over the last 3-4 years to determine the possible
impacts on the new neighbourhood. These readings were taken inside the
stadium and at several locations outside the stadium. The locations
outside included sites close to the stadium to the north and south, on
the south side of False Creek and near Quebec and Terminal. From the
readings it can be seen that the noise levels from the stadium at the
nearest residences (see readings from 950 Cambie) could be in excess of
the allowable limits of the noise bylaw. The readings also showed that
the levels noted on the south side of False Creek, and east of the
stadium at Quebec and Terminal were within the allowable limits.
B.C. Place has been kept aware of the levels noted, and has had several
acoustical engineering firms evaluate the levels and make
recommendations as to how best to attenuate the noise. It must be
pointed out that the majority of the noise escapes through the roof of
the stadium; a flexible free-hanging membrane, that is but 2/32 of an
inch in thickness, covers 10 acres and weighs 46 tons. To date, none of
the firms under contract have been willing to give a written guarantee
to the effectiveness of the proposed noise reduction. In general, the
recommendations were more geared towards better clarity of sound inside
the stadium.
Due to the high costs of the estimates, and the lack of a reasonable
guarantee of some noise reduction, B.C. Place Management has not
undertaken the work. One of the major hurdles for the work is the fact
that the roof is free-floating, thereby making it very difficult to
suspend attenuating materials, as the added weight could cause the roof
to collapse.
At this time, the allowable level of noise from B.C. Place Stadium
(Activity Zone) as received at the point of reception, or property line
of, a residential premises (quiet zone), is 60 dBA (slow) during the
daytime, and 55 dBA (slow) during the nighttime. (see Appendix B)
Attached as Appendix A is a list of events that have been held at the
stadium from 1989 to present. It shows, that on average, there have
been 4 concerts, and 1 truck & tractor pull each year. As noted above,
these are the events that can be expected to elicit the majority of the
noise complaints.
Concerts, as a rule, begin at 7:00 p.m. and end between 10:30 - 11:30
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p.m. On occasion they can go on until midnight. The truck & tractor
pull usually starts at 7:30 - 8:00 p.m. and goes until around midnight.
Staff from the other stadiums like B.C. Place in North America were
contacted. The majority are located in industrial areas away from
residential. All reported that complaints were not common.
Other possible sources of noise in the area include the Plaza of
Nations, the Molson Indy Track, and the waters of False Creek. The
events held at these venues include the Molson Indy (daytime), the
Vancouver Marathon and Sun Fun Run (early daytime), the Dragon Boat
Festival (day and nighttime), and an assortment of outdoor events in the
Plaza of Nations (day and nighttime). It must be noted that most of the
above events have been in place for a number of years at the same sites.
DISCUSSION
From past experience, it can be assumed that complaints may come from
new residences near B.C. Place once they are occupied. Readings taken
at the new high-rise at 950 Cambie, on the evening of March 30, 1993,
while live music was being played by the rock band Guns 'n Roses, show
that the noise levels could exceed the allowable bylaw limits; i.e. Ú55
dBA (slow) (note: the apartments were not occupied at the time of the
readings). (See Appendix C)
Readings taken at other concerts, both inside and outside of B.C. Place,
show that the above levels are what can be expected, on average. Levels
inside, with the band playing, range from 95 - 110 dBA (slow).
The noise levels that can be expected from the Truck & Tractor Pull,
generally held each February, will be somewhat louder but more sporadic.
The levels encountered inside go up to 125 dBA (slow), but last for less
than 1 minute at a time. The levels encountered outside could be
expected to be between 80 - 90 dBA (slow), depending upon the distance
from the stadium.
Using the information gathered over the last several years it can be
shown that:
1) The noise levels on the south side of False Creek, and in the area
of Quebec and Terminal are within the allowable limits; i.e. Û55
dBA (slow). The music is still audible;
2) More complaints are received as a result of noise from live
concerts than from the truck and tractor pull. This is most
probably due to the fact that the noise;
i) is sporadic;
ii) is in February, a time of the year when most residents windows
are closed; and
iii) on a Saturday evening.
3) Weather conditions can affect the transmission of noise from B.C.
Place, but will not be a factor with regards to residences nearby.
To explain, certain weather conditions, such as low dense cloud
cover, temperature inversions and wind direction can allow for the
noise to travel and be heard at greater distances. The noise
levels at these distances are not over the allowable limits, but
cause concern to residents who are not normally able to hear music
from B.C. Place.
The most recent example of this occurred during the U2 concerts,
which were held on consecutive days. The first night the weather
was rainy with very dense, low clouds and the wind from north to
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south. Many complaints were received by the police and our
department from as far away as W. 33rd Ave and Cambie. The
following night was clear, cool with little wind. No complaints
were received by either the police or health. Noise readings taken
on both evenings showed that the noise levels were the same.
4) Noise levels inside/outside the stadium have generally been the
same for most concerts and the truck and tractor pull. It must be
noted that the noise levels from the truck and tractor pull are
approximately 10-15 decibels higher than the average concert level.
5) The noise levels on the north side of False Creek and at premises
in close proximity to B.C. Place Stadium could be over the
allowable limits during concerts and the truck and tractor pull.
The other events held at the stadium should meet the allowable
limits.
6) The ambient noise level in the area, mainly due to traffic, is
between 55 - 65 dBA (slow).
It is our belief that we have 5 options:
1) Make no changes and deal with the noise on a complaint basis, as is
normal.
2) Amend section 14(a), Council Authorized Event Exempt, of the Noise
Bylaw 6555, to include an exemption for a specific number and type
of events at B.C. Place, i.e. concerts and a truck and tractor
pull.
3) Have B.C. Place Stadium apply for a Mayoral Exemption (Section 17)
on an event by event basis.
4) That B.C. Place Stadium management be required to provide a report
on the feasibility and practicality of noise attenuation measures
within the stadium.
5) That City staff and the developers of sites near B.C. Place be
instructed to make noise mitigation a key design consideration for
residential buildings through the rezoning and development permit
processes.
Option one, making no changes, would result in our department doing a
follow-up as the result of receiving a complaint. The follow-up would
be carried out at the first concert after the complaint, at the property
line of the complainant.
Options 2 & 3 would allow Council and/or the Mayor to prescribe, through
dialogue with B.C. Place, the neighbouring residents and the pertinent
City departments, an acceptable number and set of guidelines for future
concerts and truck and tractor pulls at the stadium.
Option 4, in tandem with Option 2 or 3, would ensure that all has been
done to ensure that the least possible amount of noise is escaping from
the building.
Option 5 is being pursued and can be emphasized further through the
pending rezoning and development permit processes. Solutions include
construction applications for noise mitigation (thicker walls, double
glazing), orienting key habitable spaces and outdoor recreation areas
away from the stadium noise source, and locating shielding structures
between the housing and stadium noise source.
CONCLUSIONS
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Certain events that are held at B.C. Place Stadium could cause noise
impacts on residents who move into new premises near the stadium. As
noted in the discussion, the "noisy" events at B.C. Place last an
average of 3-4 hours, and occur 4-5 times per year. All of the events
end between 11:00 p.m. and midnight.
The noise levels should not adversely impact residents who are watching
television or listening to their stereo at a normal level (60-70
decibels), and who have their windows and balcony doors closed.
* * * * * APPENDIX B
Page 1 of 2
The applicable portions of the bylaw are:
"continuous sound" means any sound occurring for a duration of more than
three minutes, or occurring continually, sporadically or erratically but
totalling more than three minutes in any 15 minute period of time;
"Council" means the Council of the City of Vancouver;
"daytime" means from 7 o'clock in the morning (0700 hours) to 10 o'clock
in the evening (2200 hours) on any week day or Saturday, and from 10
o'clock in the morning (1000 hours) to 10 o'clock in the evening (2200
hours) on any Sunday or holiday;
"point of reception" means:
(a) a point in a lane or street, adjacent to but outside of the
property occupied by the recipient of the poise or sound, that
represents the shortest distance between that property and the
source of the noise; or
(b) where no lane, street, or other public property exists between
the recipient and the source, any point outside the property
line of the real property from which the noise or sound
emanates; and
(c) in either case at least 1.2 metres above the surface of the
ground;
Activity Zone 6. No person shall in an activity zone make,
Sound Level cause or permit to be made or caused,
Limits continuous sound the sound level of which:
(a) during the daytime exceeds a rating of 70 on an
approved sound meter when received at a point of
reception within an activity zone, or 60 on an
approved sound meter when received at a point of
reception within a quiet zone; or
(b) during the nighttime exceeds a rating of 65 on an
approved sound meter when received at a point of
reception within an activity zone, or 55 on an
approved sound meter when received at a point of
reception within a quiet zone.
Non-Continuous 7. No person shall in an activity zone or a quiet zone
make, cause, or permit to be made or caused, non-
continuous sound the sound level of which during the
daytime exceeds a rating of 75 on an approved sound
meter, or during the nighttime exceeds a rating of
70 on an approved sound meter when received at the
point of reception. APPENDIX B
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Council- 14A. Notwithstanding any provision of this by-law a
Authorized person may make or cause a noise or sound which
Events Exempt exceeds the sound levels set out in this by-law
where such noise or sound is made by a participant
in and as a consequence of a nuisance abatement
program, festival, race, parade or other special
event provided such program, festival, race, parade
or event has been authorized by Council.
APPENDIX C
Following are the results of noise readings taken at several locations
at 950 Cambie during the live performance of Guns'n' Roses on March 30,
1993. All of the readings were taken at the N.E. Corner of the
building, facing directly at the stadium.
The levels noted while the band was playing were:
1) on the roof - 10 min Leq - 65.3 DBA (slow)
Lmax - 69.5 DBA
- traffic noise - 56.3 DBA
2) inside penthouse -
a) doors & windows closed - 3 min Leq - Leq - 42.2 DBA (slow)
Lmax - 47.0 DBA (motorcycle)
Lmin - 35.3 DBA
Music to 45.0 DBA
crowd noise 39.0 DBA
b) eastside windows open - 3 min Leq
- Leq - 53.5 DBA (slow)
- Lmax- 56.9 DBA (concert music)
- Lmin- 46.3 DBA
3) inside apartment on 23rd floor, middle apartment facing east,
3 min Leq, with windows closed.
- Leq - 40.6 DBA (slow)
- Lmax - 48.0 DBA (concert music)
- Lmin - 33.9 DBA
Site 1, on the roof, would satisfy our definition of "point of
reception" under our bylaw. The "continuous" level of greater
than 55 dBA (slow) noted shows that noise from a concert at B.C.
Place could be over the allowable limits.