EPA 550/9-77-354
Department of Housing and Urban Development:
NOISE ABATEMENT
AND
CONTROL POLICY
Environmental
Prot'
1982
LIBRARY
April 1977
VOL II
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EPA
550-
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U.S. Environmental Protection Agency
Office of Noise Abatement and Control
Technology and Federal Programs Division
Washington, D.C. 20460
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Federal Noise Program Reports
This report discusses some of the features and problems of the Department of
Housing and Urban Development's Noise Abatement and Control Policy. Its purpose is
to serve as aid to persons concerned with noise abatement and control activities in the
Federal Government. The report is the second in a series of documents discussing various
Federal agency noise programs to be published by the Environmental Protection Agency
in partial fulfillment of its responsibility under Section 4 of the Noise Control Act of
1972 (PL92-574).
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E^A US EPA
550 " Hpadauarters and Chemical Libraries
^. Head§PA west Bidg Room 3340
"IVu Mailcode 3404T EPA 550/9-77-354
B?r4 1301 Constitution Ave NW
Washington DC 20004
202-566-0556
k. FEDERAL NOISE PROGRAM REPORT SERIES
VOLUME II
Department of Housing and Urban Development:
Noise Abatement and Control Policy
April 1977
tO
JO
0
Repositoiy Material
Permanent Collection
U.S. Environmental Protection Agency
Office of Noise Abatement and Control
Technology and Federal Programs Division
Washington, B.C. 20460
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CONTENTS
Section 1 INTRODUCTION
Overview of the Noise Policy and its Importance
Section 2 REQUIREMENTS
The Noise Policy
The Noise Standards
Exceptions Provisions
The Amount of Discretion Left to HUD
Personnel in Implementing the Policy
Noise Descriptors Used
The Environmental Clearance Process
Key Features
System of Thresholds
The Rating System
Internal Environmental Review
Negotiation of Project Changes
Relationship Between the Noise Policy
and the Environmental Clearance Process
Section 3 IMPLEMENTATION
Guidance and Assessment Techniques: Tools for
Decision-Making
Problems in Implementation
How State and Local Governments Can Affect
and are Affected by the HUD Noise Policy
How other Federal Agencies Can Affect and are
Affected by the HUD Noise Policy
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APPENDICES .
Appendix A Description of HUD's Housing Community
Development and Planning Programs
Appendix B HUD Organization and Responsibilities
Appendix C Where to Go to Get Information on HUD Noise Policy
Appendix D Status of HUD Regulations, Instructions and Issuances
Relating to Noise Abatement
Appendix E HUD Environmental Clearance Forms (Housing)
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FIGURES
Figure 1
Figure 2
FigureS
Figure 4
Table 1
Table 2
Page
HUD's Environmental Clearance Process (Typical Housing Project) 2-6
HUD's Environmental Clearance Levels (Housing Projects)
Meanings of HUD Environmental Impact Ratings
HUD Organization
A. Headquarters Structure
B. Regional Office Structure
C. Area Office Structure
TABLES
HUD External Noise Exposure Standards
HUD Interior Noise Standards
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B-3
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Section 1
INTRODUCTION
The Department of Housing and Urban Development (HUD) has a noise policy that it
applies in making decisions as to whether and how its assistance services are to be delivered
in certain areas.
Today, there is an increasing need for improved communication among people in the
different Federal noise programs. This need is occasioned by the increasing complexity and
interdependency of Federal noise programs. This very complexity makes communication
more necessary and, at the same time, makes it more difficult.
This document is intended, therefore, to aid the Environmental Protection Agency
(EPA) and other Federal agencies involved in noise abatement and land-use planning
activities, by providing a framework for understanding the HUD noise policy.
The Noise Control Act of 1972 (PL92-574) designated EPA as the coordinator of
Federal noise programs to ensure that they are consistent and mutually reinforcing. EPA
believes that one way to facilitate coordination is to promote an understanding of other
agencies' programs by publishing a series of Federal noise program guides. This document
covers some important features of HUD's noise policy, its problems and its relationship to
other agencies' noise programs.
The document is not intended to represent an "evaluation" of HUD's noise policy.
It is a synthesis of some of EPA's perceptions concerning the policy. EPA supports HUD's
own belief that the noise policy represented a bold and innovative step when promulgated
in 1971, and is a potentially effective tool which can be used in concert with those.of other
agencies to carry out the Federal role in achieving a quieter environment.
OVERVIEW OF THE NOISE POLICY AND ITS IMPORTANCE
The policy is predominantly a land use policy since its basic premise is that market
acceptability is no longer the sole criterion in judging the eligibility of properties for HUD
assistance but that the environment, particularly the noise environment, is also to be con-
sidered. HUD, by means of this policy, is not trying to, halt the building of needed housing
or "growth" per se. It is trying to encourage residential development in areas which con-
stitute good residential environments and this includes a suitable noise environment. The
policy relates to HUD's overall goal of providing "a decent home and suitable living environ-
ment for every American Family."
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The policy does not apply to existing housing; it applies only to HUD's actions in new
construction or "substantial rehabilitation" of five or more units. It is, therefore, aimed
primarily at developers of housing projects who affect growth patterns.
The HUD noise policy is important because, within reasonable limitations, it has been
successful in doing four things:
1. Protecting residents of HUD assisted housing from excessive noise;
2. Discouraging development which is incompatible with high noise levels in
certain areas;
3. Educating people about noise;
4. Inspiring other government agencies and private institutions to action.
HUD assists or guarantees only 5-10 percent of the national housing market so that
control of residential construction by HUD is automatically limited. Nevertheless, HUD
influence has been considerable in certain communities in which the success of major
developments is dependent on HUD assistance.
The indirect effect of the HUD noise policy has been persuasive because of its educa-
tional value. Because of its existence, builders, as well as buyers, who apply to HUD for
mortgage loans have become familiar with the detrimental effects of noise on people as
well as its adverse effect on property values. The HUD noise policy has been a force in
dissipating traditional American cultural attitudes and assumptions that noise is an unavoid-
able concomitant to urban development.
The HUD policy has also influenced some other Federal agencies. For example, the
HUD land-use objectives and noise exposure criteria have been incorporated into DOD's
Air Installation Compatible Use Zones Program (AICUZ). EPA has endorsed the HUD
policy as a good interim noise policy2 and through its technical assistance program, has
encouraged State and local governments to utilize its provisions in their land-use planning
activities.
1 HUD defines "substantial rehabilitation" to mean any rehabilitation effort that extends
the time of habitation twenty (20) or more years (see HUD memoranda in Appendix D). Of
the 5000 to 8000 projects that HUD processes per year, most are of types which must comply
with the noise policy.
2 Administrator W. Ruckelshaus gave the initial EPA support for the HUD policy, in a
letter, dated March 16, 1971, on the policy then proposed (essentially identical to the August
1971 version of HUD Circular 1390.2). EPA still agrees with his statement that 'The Pro-
posed Policy Circular provides a sound, rational approach to the control of noise in new
and rehabilitation housing projects seeking HUD assistance where environmental noise
levels exceed acceptable limits for such projects is, in our opinion, a judicious use of basic
authorities."
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The HUD policy, as was intended, also has influenced many State and local agencies
to take action. In some communities, the policy has led to the passage of land use control
laws. The effect has been apparent in the private sector as well: certain commercial banks,
although no law specifically requires that they follow HUD's lead, refuse to lend or guarantee
loans if the HUD noise standards are not satisfied.
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Section 2
REQUIREMENTS
THE NOISE POLICY
HUD makes decisions relating to housing development in response to applications it
receives from developers, builders or individuals. These decisions are not simply of the
"yes/no" type but involve substantial negotiations with the applicant. There are three
basic decisions to be made at different stages: 1) whether to approve the application,
2) whether to approve the preliminary plans and 3) whether to approve the final specifica-
tions and drawings (which may include, as necessary, noise attenuation features). Noise is
considered at all phases in the process.
The noise policy is contained in HUD Circular 1390.2. HUD Headquarters has further
clarified and refined the policy through a series of memoranda (see Appendix D). There
are three critical features of the policy: 1) a set of quantitative noise standards, 2) a policy
on exceptions, and 3) provisions delineating the amount of discretion left to HUD personnel.
The Noise Standards
HUD's noise standards can be typified as follows:
a. External noise standards;
b. Internal noise standards;
c. Requirements for insulation between dwelling units.
The standards for the exterior are the first to be applied (Table 1). All sites must meet
the General External Exposure Standards. Those sites located in the vicinity of airfields must
also meet the Airport Environment Standards. These standards are not comparable and
cannot be used interchangeably. Therefore, if a project near an airport is evaluated as
"acceptable" relative to the Airport Noise Standard, it may still be classified as "unaccept-
able" if it fails to meet the General External Exposure Standards. As is apparent from
studying Table 1, HUD categorizes potential sites (on the basis of existing noise levels or
levels projected for the next 10 to 15 years) as follows:
• Acceptable
• Discretionary - normally acceptable
• Discretionary - normally unacceptable
• Clearly unacceptable
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TABLE 1. HUD EXTERIOR NOISE STANDARDS3
Site
Acceptability
Category
Unacceptable
Discretionary -
Normally
Unacceptable
Discretionary -
Normally
Acceptable
Normally
Acceptable
General External Exposure Standards
HUD Standards
- Exceeds SOdBA
60 minutes
per 24 hours
- Exceeds 75dBA
8 hours
per 24 hours
- Exceeds 65dBA
8 hours
per 24 hours
— Loud
Repetitive
sounds
— Does not exceed
65dBA more
than 8 hours
per 24 hours
— Does not exceed
' 45dBA more
than 30 minutes
per 24 hours
Approximate
L Value
L4 > SOdBA
L33 > 75dBA
L33 > 65dBA
L33 < 65dBA
L2 < 45dBA
Airport Standards
HUD Standards
NEF > 40b
CNR> 115
NEF 30-40
CNR100-115
Approximate
LdN Value
Ldn > 75
Ldn 65-75
NEF < 30 , ^s.
CNR<100 Mn^w
Administrative Procedures
Exceptions are strongly discouraged
and require a 1 02(2)c environmental
statement and the Secretary's
approval.
Approvals require noise attenuation
measures, the Regional Administra-
tor's concurrence and an Environ-
mental Impact Statement. In case
where a project "in-fills" existing
development, internal memoranda
(appendix D) modify this provision
to provide for a special environmental
clearance.
Ordinary Administrative
procedures apply
to
to
Measurements and projections of noise exposures are to be made at appropriate heights above site boundaries.
bThe Composite Noise Rating (CNR) and Noise Exposure Forecast (NEF) are cumulative noise descriptors which were
developed exc/u.«v> for use in airport environments. CNR and NEF are roughly translatable into Ldn, the noise
descriptor having applicability to all noise sources which EPA has recommended be utilized by Federal agencies.
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While the General Exposure Standards are not translatable into the cumulative noise
discriptor Ldn, the Airport Standards are roughly equivalent to the Ldn values drawn in
on Table I.2
The interior noise standards as shown in Table 2 are applicable to sleeping quarters.
With respect to other interior areas (i.e., other than sleeping) HUD personnel may exercise
discretion.
A third type of noise standard is not used for site assessment, but must also be met. It
concerns insulation between certain dwelling units (multi-family structures, including attached
single-family units). Floors and dividing walls between these dwelling units must have a
Sound Transmission Class (STC)3 of greater than 45. Those having less than 45 STC are
always unacceptable.
"Exceptions" Provisions
In general, HUD will not grant exceptions to its noise policy in cases where sites are
determined to have "clearly unacceptable" noise exposures (i.e., where the Ldn exceeds
75 dB). For an exception in such a situation, an Environmental Impact Statement for the
site must be filed and the Secretary of the Department of Housing and Urban Development
must personally approve the action. To date there have been no such exceptions to the
policy.
For sites which are "normally unacceptable," HUD is reluctant to grant exceptions.
As a general rule, HUD does so only when there is pressing local need for housing when
the chosen sites are, based on the local land and environmental resource inventory, the
most appropriate among the alternatives available.4 As Table 1 indicates, approvals are
contingent on the incorporation of noise attenuation measures, the HUD Regional Admin-
istrator's concurrence and an Environmental Impact Statement or Special Environmental
Clearance.
1 Ldn, day-night sound level, is the energy-averaged equivalent level (Leq) for 24 hours,
adjusted to include a 10 dB penalty for noise exposures during night-time hours (10 p.m.
to 7 a.m.).
2 HUD is currently studying the potential use of the Leq/Ldn methodology for its
standards. However, where noise is already described in Ldn, HUD, after making its
own assessment of these contours, utilizes Ldn in implementing its policy.
3 The STC is a single number rating which provides an estimate of sound transmission
loss through a wall or floor, as related to airborne sound generated by a limited class of
household sound sources.
4 HUD requires that if local housing agencies do not conduct studies leading to a land-
use plan, then applicants must document the need for such housing. This documentation
must discuss alternatives.
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TABLE 2. HUD INTERIOR NOISE STANDARDS8
AREA
Sleeping quarters
Other interior areas
HUD Standard
— does not exceed 55dBA for more than 60 minutes
in any 24 hour period, and
- does not exceed 45dBA for more than 30 minutes
during night time sleeping hours from 1 1 p.m. to
7 a.m., and
— does not exceed 45dBA for more than an accumulation
of 8 hours in any 24 hour day.
HUD personnel discretion
Approximate L Value
-L4<55
- L 6.25 (night)< 45
- L33 < 45
aTo be met regardless of whether noise originates from exterior noise sources or interior building sources such as heating,
plumbing, and air conditioning. The means required for achieving the standards will depend on, among other things, the
external noise levels, the equipment and layout used in the building, and the noise attenuation characteristics of the
buildings, floors, and walls. These standards assume open windows unless other provision is made for adequate ventilation.
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Some sites have both unacceptable and acceptable portions. For these, HUD has
modified its policy so that it may, after negotiation, approve sites where no more than 5
to 10 percent of the proposed project is in the "normally unacceptable" category. Approval
is contingent upon the objectionable features being excluded from the assisted project. The
environmental assessment, however, must include the problem area of the site, for HUD is
anxious to ensure that such approvals do not spur incompatible development in adjacent
areas.1
Sites having exposures which are "normally acceptable" or "clearly acceptable" have no
need for special requirements.
The Amount of Discretion Left to HUD Personnel in Implementing the Policy
How flexible is the HUD noise policy? This question is an oft debated one both
within and outside the agency.
HUD personnel have no choice in deciding whether the noise policy is applicable: the
standards are to be applied uniformly to all HUD-assisted projects involving new construc-
tion or "substantial rehabilitation." If exceptions are deemed necessary, such decisions
are not made at the project approval level but are elevated to the Regional Administrator
who must decide in some "normally unacceptable" situations or the HUD Secretary who
must approve all "clearly unacceptable" proposals.
Noise Descriptors Used
When HUD adopted its standards, there was no generally accepted cumulative environ-
mental noise descriptor for all sources. HUD, therefore, adopted the descriptors then avail-
able for describing aircraft noise (i.e., the CNR and the NEF), which are not applicable to
the description of noise from other sources. The General Exposure Standards cover all
other noise sources. The descriptor used (Figure 1) is unconventional and has fostered
difficulties in noise measurement, prediction, and assessment. These difficulties exist apart
from the confusion inherent in having two different standards for evaluating project sites.
Some of the specific difficulties are:
a. The descriptor does not accommodate loud intermittent sounds. That is,
it takes many short noisy events to accumulate eight full noisy hours out
of twenty-four. When the descriptor alone is applied to heavily impacted
sites such as those in railroad environs, they may receive an acceptable
rating. To counteract this, the HUD standards classify "loud repetitive
sounds" to be "Discretionary - Normally Unacceptable" (including railroads).
This allows the exercise of judgments in such cases. Such judgments are
naturally open to dispute; they cannot be administered uniformly.
1 This modification to the HUD noise policy is elaborated in a memorandum, dated
2/19/75, to the HUD regions (Appendix D).
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Normal Clearance
NJ
Determine Level
of Clearance via
Threshold!
Determine
Noise Level
at Project
Site
Evaluate Noise Exposure
(Acceptable, D iscretionary
or Unacceptable)
Require Noise
Attenuation
Figure 1. HUD Environmental Clearance Process (Typical Housing Project)
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b. HUD cannot readily use standard estimation and prediction models for non-
aircraft noise because of its descriptor in the current policy. Neither can HUD
readily use analyses done by other agencies — e.g., those of the Federal Highway
Administration for highway noise. When they are used, adjustments must be
made;
c. Measurement devices used must be specialized for HUD use.
THE ENVIRONMENTAL CLEARANCE PROCESS
The assessment of a site for compliance with the noise policy is made as part of HUD's
Environmental Clearance Process. (This is consistent with the nature of a housing project:
it is a potential generator of noise as well as a sensitive noise receptor.)
The process is delineated in HUD Departmental Handbook 1390.1 -1 The processing
of Environmental Clearances for housing projects is also explained in Chapter 8 of HUD
Handbook 4010.1? Because of the nature of the Community Development Block Grant
Program, HUD has issued special regulations which specifically cover environmental con-
siderations for that program (Appendix D).
Key Features of Environmental Clearance Process
There are four features of the process (Figure 1) which are critical to understanding it.
They are:
1. the system of thresholds;
2. the rating system;
3. the internal environmental review;
4. negotiation of project changes.
HUD applies the same qualitative criterion as all agencies in determining whether an
action requires an EIS: i.e., whether the action will have a "significant impact" on the
quality of the environment.3 For actions with lesser impact, HUD still requires an
1 HUD environmental review requirements cover also1 program policy documents such
as the noise policy. In the case of the latter, an EIS was prepared and circulated for comment.
2 The principal difference between the two is that 4010.1 is fairly brief and procedural
and applies only to Housing Production and Mortgage Credit (HPMC) Programs. 1390.1
gives more substantial guidance which applies to all HUD programs.
3 HUD has prepared only about 200 EIS's since the National Environmental Policy
Act of 1969 was enacted; it prepared about 50 in 1975. It is expected that the most active
field offices will prepare about ten annually.
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environmental assessment. Therefore, each proposed HUD action requires one of the
following clearances:
1. A normal clearance, or
2. A special clearance; or
3. An Environmental Impact Statement.
/. System of Thresholds
The level of clearance is determined by the series of thresholds in Figure 2. These
thresholds act as automatic triggers to the various levels of clearance. They eliminate one
area of discretion on the part of field personnel and ensure that projects of similar size will
be handled uniformly within the overall framework of the Environmental Clearance Process.
One variation is allowed within this system. If HUD personnel are able to determine quickly
that a project will potentially result in an "unacceptable" impact, it may be immediately
upgraded to a higher level of clearance or rejected.
2. The Rating System
The instrument used in the process is the HUD form ECO-2/3 (Appendix E). The
form contains a comprehensive list of factors, some or all of which may be applicable to a
given project. Each factor that is applicable to the project is given a separate rating. The
rating can be:
"acceptable," or
"questionable," or
"undesirable or unacceptable."*
A rating is to be based upon available standards,2 assessment criteria for the needs of the
community and the professional judgment of processing personnel. The HUD definition
for these ratings are identified in Figure 3.
It is significant from the standpoint of noise exposure that a project may either be
rejected or require modification on the basis of an "unavoidable, unacceptable" rating
for one factor. Since HUD has a noise exposure standard from which it strongly dis-
courages exceptions, an "unacceptable" noise exposure is sufficient to result in rejection
of a project.
1 HUD Handbook 4010.1, Chapter 8, "Procedure for Environmental Clearance by HUD
Insured Projects, Subdivisions, and Low Rent Projects," p. 1.
2 The Noise Policy provides one such standard. In addition, to its noise standards,
HUD has three other environmental standards: minimum property, flood relief and propane.
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Normal Clearance:
a. Multifamily Projects consisting of 5 units (beds) or more and
all nursing homes and group practice facilities.
b. Subdivision: Any proposal processed as a subdivision.
Special Clearance:
a. Multifamily Projects consisting of 200 units or more or other
projects in excess of $5,000,000 requested mortgage amount.
b. Subdivisions: Typical proposed lot size 6000 square feet or
greater = 100 units or more.
c. Typical proposed lot size under 6000 square feet = 200 units
or more.
Environmental Impact Statement (EIS):
a. Multifamily Projects and Subdivisions consisting of 500 units
or more. It is recognized that in high density areas, size alone
need not necessarily imply a significant impact on the quality
of the human environment. Therefore, special exemption to
this threshold requirement may be granted by the Assistant
Secretary for Community Planning and Development where
typical densities in the immediate environs of the proposed
multifamily project exceed 50 units per acre (LUI * of 5.2 to
7.3). (Area-wide waivers may be granted for large dense urban
areas or sections thereof having such densities which meet
criteria established by the Assistant Secretary for Community
Planning and Development. Delegations of authority to approve
such waivers may be granted to the Regional Offices at the dis-
cretion of the Assistant Secretary for Community Planning and
Development.)
b. All projects which are determined to have a significant impact
on the quality of the human environment.
1 LUI is a land use intensity index.
Figure 2. HUD Environmental Clearance Levels (Housing Projects)
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Based on the best available information,1 each environmental component is to be rated
as follows:
A The component is acceptable. There are no special problems associated
with this item. Adverse impacts are negligible; other effects are neutral
or beneficial.
B The component is questionable. Problems associated with item call for
discretion in granting environmental approval to the project. Ameliorative
measures should be pursued and may be mandated by specific environmental
or program policies.
C The component is undesirable or unacceptable. Problems associated with
this item are serious and rejection may be mandated by specific environ-
mental or program policies. Ameliorative measures should be vigorously
pursued. Approval is allowed only when justified by a careful examination
and comparison of alternatives.
NA The environmental factor is not applicable to this project. For example,
access to local schools is not applicable to elderly housing projects;
coastal zone environmental policies do not apply to inland projects, etc.
1 Supplemented as necessary, i.e., additional noise measurements may be necessary, etc.
Figure 3. Meanings of HUD Environmental Impact Ratings
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Once the ratings are assigned:
1. the project may be approved environmentally and processing of the application
continued; or
2. a higher level of clearance may be required if even after securing modifications
to the project to mitigate adverse effects, one or more potential "unavoidable,
unacceptable" impacts appear to exist; or
3. the project may be rejected (if even after modification to the project to mitigate
adverse effects, there clearly exist one or more unavoidable impacts).
This evaluation considers both the potential effect of the project on the environment and
the potential impact of the environment on the project's residents. Thus, the HUD noise
policy is integrated into the Environmental Assessment Process.
3. Internal Environmental Review
Of the three categories of clearance, only the EIS requires external review. Both normal
and special clearances are handled exclusively within the HUD organization, although copies
of the project application and a site map are provided the appropriate A-95 clearinghouse.
Since HUD feels most of its actions will not require EIS's (they will not "significantly
affect" the environment), this system of clearances is designed to provide a comprehensive
environmental evaluation of all project sites while leaving open the option at critical points
in the process to upgrade the assessment to an EIS.
4. Negotiation of Project Changes
The final critical feature of the process is the requirement for HUD to work with
applicants to minimize (or avoid) adverse environmental impacts. In terms of the noise
policy, this means that when a project with a "normally unacceptable" noise exposure is
approved, noise attenuation features must be negotiated between HUD and the project
applicant. HUD requires that the noise attenuation features (and any other safeguards
needed) be included in the contractual documents and that their implementation be
monitored in the normal project monitoring/evaluation process.
Relationship Between The Noise Policy and The Environmental Clearance Process
Noise is one of the factors evaluated during the Environmental Clearance Process.
Since HUD deals principally with the location of noise-sensitive receptors, the major con-
cern is for the effect of the noise environment upon the project. If noise exposure at a
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project site is determined to be "unacceptable" this would constitute an "unacceptable"
impact (and unavoidable because the noise is generated by a source outside the project over
which HUD has no control, such as a highway or airport). In such a case three alternatives
would be open to HUD and the developer: 1) the project could be dropped, 2) the developer
could seek an alternative site for the project or 3) HUD field office personnel could seek an
exception to the noise policy. The third alternative is the least Likely. The second would
be most preferable to HUD, as placement of the housing in a noise-compatible location
would achieve both the goal of housing and the goal of good land-use planning.
If the noise level is "normally unacceptable" additional alternatives exist for project
modification to include noise attenuation features. (It is important to remember that
project sites with "normally unacceptable" noise levels are usually rejected.) Such a project
may be more readily approved if it "infills" existing development and therefore does not
encourage new development of land uses which are incompatible with noise, or if the com-
munity has a substantial housing shortage that cannot be reasonably satisfied at alternative
sites. For a large development, it is possible that only a portion of the site is impacted by
"normally unacceptable" noise and that the developer might simply delete this section of
the site from his proposal in order to receive HUD assistance for the remaining housing.
HUD's position is to discourage this type of action, however, on the basis that approval of
a portion of the site would constitute a de facto approval of incompatible development of
the remainder. The developer, with HUD backing for a portion of the site, might easily
obtain financing elsewhere for the disapproved units.
Project modification is an imprecise process of negotiation between HUD personnel
and the project applicant. In terms of obtaining noise attenuation, the process is further
obscured by the number of factors that may be considered, including the nature of external
noise, the layout of the project and the noise attenuation characteristics of proposed build-
ing materials. Agreed-upon noise attenuation features are included in contract documents.
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Section 3
IMPLEMENTATION
GUIDANCE AND ASSESSMENT TECHNIQUES: TOOLS FOR DECISION-MAKING
1. Noise Assessment Guidelines
The most important guidance material provided to HUD personnel are the Noise
Assessment Guidelines. They are intended for use by lay people as a screening tool.^
They do not represent policy. By gathering a limited amount of data, a person may use
the guidelines to estimate the noise exposure at a project site.
Because the guidelines are a screening tool designed to identify potential problems
early in the Environmental Clearance Process, they contain a built-in-bias to ensure that
estimates of noise levels are somewhat higher than actual exposure. In this way, unaccept-
able sites do not unwittingly get approved. They are to be used exclusively at the judgment
of the HUD field personnel processing the application.
2. Noise Measurement System
HUD, in conjunction with the National Bureau of Standards, has developed a noise
measurement system that is relatively easy to operate, may be left unattended at the site
and will provide an automatic read-out of the cumulative time, within a twenty-four hour
period, that noise levels exceed each of the levels specified in the General External Expo-
sure Chart (Table 1, p. 2-2). Each HUD Regional Office has one or more of these devices.
They are used some 300-350 times per year.
3. Interim Guide for Environmental Assessments
In addition to the above, HUD has recently developed an Interim Guide For Environ-
mental Assessments. This is the Department's first comprehensive technical guidance
document. It does not set any standards, but provides assistance in evaluating a wide
range of possible environmental effects. It is designed for use by HUD field personnel
and by State and local agencies (providing assistance to agencies administering 701 compre-
hensive Planning Grants and Community Development Block Grants).
The term "decibel", for example, is not utilized in the guidelines.
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PROBLEMS IN IMPLEMENTATION
HUD has had various problems in implementing the noise policy, some of which are:
Motivations and Capabilities of HUD Actors
At the field level, there are sometimes important differences in perception of the
policy's worth between the Housing personnel (who do most of the assessments) and the
Environmental Clearance Officers. The former sometimes feel that the noise policy unduly
delays delivery of housing services to the needy. In part, this perceptual difference may be
attributed to the Housing Staffs lack of understanding of the noise policy and lack of
training in this field as well as the reality of limited resources to evaluate a number of envi-
ronmental concerns. In any case, the result can often create friction at the field level within
HUD.
Lack of Resources
HUD lacks the necessary resources for generating all the data needed for implementing
the noise policy. It is, therefore, in large measure dependent upon local and State as well
as Federal agencies for such data. This can be a significant hindrance to effective imple-
mentation and requires a high degree of coordination with other agencies. The lack of
adequate coordination has, in some cases, led to adverse Congressional action.
New Program Requirements
A third generic problem for HUD results from applying the noise policy to the
Community Development Block Grant (CDBG) Program (Appendix A). The grant
recipient has the responsibility for ensuring implementation of environmental review
requirements, including HUD Circular 1390.2. Assuming recipients wished to comply with
the noise policy, a number may have been unable because they lacked sufficient expertise
and guidance. An additional problem is that CDBG recipients are not required to comply;
the environmental regulations allow them to deviate from HUD's noise standards. How-
ever, when HUD receives a request for assistance for housing construction related to a
CDBG program, it may reject the project on the basis of unacceptable noise exposure,
even though the development may be a natural outgrowth of the CDBG grant. If such
rejections occur, they are likely to be controversial.
3-2
-------
HOW STATE AND LOCAL GOVERNMENTS CAN AFFECT AND ARE AFFECTED
BY THE HUD NOISE POLICY
A major purpose of the HUD policy is to stimulate State and local planning toward
achieving noise compatible land use. Therefore, State or local government planning which
is consistent with the objectives of the policy will be used by HUD in implementing the
discretionary areas of its noise policy. It is through this mechanism that consistency
between local plans and Federal policy is achieved.
HOW OTHER FEDERAL AGENCIES CAN AFFECT AND ARE AFFECTED BY THE
HUD NOISE POLICY
Department of Transportation (DOT)/Federal Aviation Administration (FAA)
Since HUD does not generate noise contours around airports, it is dependent upon the
FAA (and in military airport environs, the Department of Defense) for this information.
At present, HUD field offices contact FAA regions for this information; however, a HUD-
FAA inter-agency agreement to provide this data on a routine basis has not been adhered
to closely.
Department of Defense (DOD)
The relationship between DOD elements and HUD has been less formal and more
active than that between FAA and HUD. HUD is given an opportunity to review DOD's
AICUZ1 studies prior to promulgation, and receives copies of the final studies. Since
HUD's policy is also designed to prevent encroachment on complex noise generators such
as airfields, DOD has a natural interest in cooperating with HUD. HUD uses the noise
contours generated by the AICUZ studies to implement its policy around DOD air
installations.
Veterans Administration (VA) and Farmers Home Administration (FmHA)
The VA noise policy applies to airport environs only and is not entirely consistent
with HUD's policy. The result is to weaken the HUD noise policy since a developer may,
upon being turned down by HUD, solicit assistance from VA. This has resulted in increased
coordination between many HUD and VA offices in the field, although the relationship
between the two agencies differ radically across the nation.
The FmHA has no noise policy.
1 The acronym refers to DOD's program to abate noise in military airport environs:
the Air Installation Compatible Use Zones Program.
3-3
-------
Department of Transportation (DOT)/Federal Highway Administration (FHWA)
The FHWA generates noise information around existing as well as proposed highways
which is of potential use to HUD. At present, however, the two agencies use different met-
rics and there is relatively little interaction between them.
-------
APPENDIX A
DESCRIPTION OF HUD'S
HOUSING COMMUNITY DEVELOPMENT AND PLANNING PROGRAMS
-------
Appendix A
OVERVIEW OF HUD'S PROGRAMS
HOUSING PROGRAMS
These 46 programs, constituting the bulk of HUD's total activity, are designed to
assist low and moderate income families in obtaining housing. Most of them apply to new
construction or substantial rehabilitation of single or multi-family dwellings, mobile homes
and mobile home sites and properties (and, therefore, they are programs to which the noise
policy does apply). They can be categorized as follows:
1. Loan Programs
a. Guaranteed/Insured Loans —These are programs where HUD agrees to
indemnify a lender (e.g., a commercial bank) against part or all of any
defaults by those responsible for repayment of the loan. Much of HUD's
housing program falls in this category. The noise policy applies to all
except those that involve existing housing; however, environmental
noise exposure is an important factor in determining the amounts of
insurance and other assistance on existing construction.
b. Direct Loans - These are programs where HUD lends money for a
specific period of time. Loans may or may not require the payment
of interest. For example, under the Section "106(b)" program, HUD
makes interest-free loans to non-profit sponsors to cover 80 percent
of preconstruction expenses for planning low- and moderate-income
housing projects to be developed under Sections 236,221 (d) and 235.
2. Project Funding Programs - These are programs which deliver funding of specific
services or products. Of the 46 housing programs, 33 require environmental
reviews as part of the application approval process. The remainder generally
fall into two categories:
a. mortgage insurance for the individual purchase of 1- to 4-family units
which are proposed, under construction or already existing (falling
below the threshold for a normal clearance) or
b. series of experimental housing programs.
A-l
-------
All but four of the programs that involve an environmental review either require
or allow the funds obtained from or insured by HUD to be used in new con-
struction or rehabilitation of housing and other facilities (e.g., nursing homes).
COMPREHENSIVE PLANNING GRANT PROGRAM (the "701" Program)
This program was established in 1974 pursuant to the Housing Act of 1954, Section
701, as amended. The purpose of the program is to strengthen the planning and decision-
making capabilities of chief executives of states and local governments and area-wide
planning organizations. Grants are made to states and other governmental units to support
a broad range of studies and planning activities. Obligations for the program have been
as follows:
FY74- 75 million
FY75 - 100 million
FY76- 75 million
HUD requires that an environmental assessment (including assessment of noise
impact) to be made if the study is to be used for future development and 701 funds may be
used to conduct community noise impact studies. HUD has recently required that the HUD
noise policy be incorporated in the environmental assessment and must identify and discuss
any deviation from the policy. The program is implemented on the regional level; area and
insuring offices are not directly involved.
COMMUNITY DEVELOPMENT BLOCK GRANT PROGRAM (CDBG)
This program, established as result of passage of the Housing and Community Develop-
ment Act of 1974, is designed to provide eligible communities with Federal funds for local
development with broad discretion allowed and with as few strings attached as possible.
Many CDBG actions make land available for residential development. Funds may be used
for a wide range of development projects such as installation, maintenance or repair of
public works facilities. Recent obligations for the program are:
FY 75 - Approximately 2.5 billion
FY 76 — Approximately 2.5 billion
As permitted by the Housing and Community Development Act of 1974, HUD regulations
transfer the responsibilities for environmental assessments for these projects to the communi-
ties. Although a Environmental Impact Statement (EIS) is not automatically completed with
each grant, the community is required to maintain an Environmental Review Record of the
entire project. HUD's regulation specifies broad procedural guidelines while leaving the
manner in which the environmental review is handled largely to the discretion of the applicant.
A-2
-------
Recipients must "consider" noise in the Environmental Review Record and in any
EIS completed pursuant to the project. While HUD urges community compliance with its
noise policy and requires that the community conform to the noise standards, communities
are not prohibited from deviating from the policy on a case-by-case basis. Any such devia-
tion must be addressed explicitly in the Environmental Review Record (setting forth the
reasons). The applicant, however, retains all approval authority.1 The program is imple-
mented through the HUD area offices.
SPECIAL PROGRAMS
HUD also administers various programs in addition to those mentioned. Among the
more important are "New Communities," Federal flood insurance and Disaster Assistance.
1 The thrust of the program is to consolidate several categorical grant programs. For
example, title 1 of the Act consolidated the following seven HUD programs; Urban
Renewal, Model Cities, Water and Sewer Facilities, Open Space, Neighborhood Facilities,
Rehabilitation Loans and Public Facilities Loans.
A-3
-------
APPENDIX B
HUD ORGANIZATION AND RESPONSIBILITIES
-------
Appendix B
ORGANIZATIONAL STRUCTURE AND RESPONSIBILITIES
There are three basic levels to the HUD organization:
1. Headquarters — Washington, D.C. (Figure 4A),
2. Ten Regional Offices (Figure 4B) — located in the ten standard Federal regions, and
3. Thirty-nine Area Offices and thirty-seven Insuring Offices (Figure 4C).
The HUD Insuring Offices, holdover elements of HUD's predecessor organization, the
Federal Housing Administration, are equivalent to the Housing Production and Mortgage
Credit Division of the Area Offices.
STRUCTURE AND ROLE OF HEADQUARTERS
Two headquarters offices influence the noise policy. The Office of Environmental
Quality (OEQ), is responsible for the overall development and implementation of HUD's
noise policy. The Office of Policy Development and Research conducts the research in
support of the policy.
The OEQ is responsible for giving technical assistance and guidance to the field and
for review and approval of areawide noise data (such as airport noise contours) for use in
implementing HUD's noise standards. The OEQ reports to the Assistant Secretary for
Community Planning and Development (CPD) and is responsible for coordinating all HUD
environmental policies and procedures. Most of HUD's programs however, are under the
Assistant Secretary for Housing Production and Mortgage Credit. The only HUD assisted
programs administered directly by CPD are the Community Development Block Grant
Program and the 701 Planning Grant Program.
STRUCTURE AND ROLE OF THE TEN REGIONAL OFFICES
The primary role of the regional offices is to technically assist the area and insuring
offices. The regions also directly administer the 701 Planning Assistance Program.
The key regional person in handling noise matters is the "Environmental and
Standards Officer." The Regional Administrator approves or disapproves project sites
whose noise exposures are "normally unacceptable."
B-l
-------
Autttartt Secratuy for
Community Planning
and Development
Figure 4A. HUD Organization: Headquarters Structure
-------
Program Planning
Staff
Breakthrough
Staff
Regional Administrator
Deputy
Labor Relations
Staff
Regional Counsel
Assistant Regional
Administrator for
Housing Production
and Mortgage Credit
Assistant Regional
Administrator for
ECO Community
. Planning and Manage-
ment Development
Assistant Regional
Administrator for
Equal Opportunity
Environmental and
Standards Officer
(ESO)
Public Affairs
Officer
Assistant Regional
Administrator for
Administration
Assistant Regional
Administrator for
Community
Development
Assistant Regional
Administrator for
Housing Management
Area Offices
Insuring Offices
Figure 4B. HUD Organization: Regional Office Structure
-------
Director
CO
Equal
Opportunity
Division
Area
Counsel
Environmental
Officer or
Staff
Economic and
Market Analysis
Division
Administrative
Division
Housing Produc-
tion and Mortgage
Credit Division
Housing Manage-
ment Division
Community
Planning and
Development
Division
Figure 4C. HUD Organization: Area Office Structure
-------
STRUCTURE AND ROLE OF THE 39 AREA AND 37 INSURING OFFICES
The area and insuring offices are HUD's basic field offices. They are responsible for
most project approvals and for completion of all environmental clearances.
The key person in noise at the area office is the "Environmental Clearance Officer"
who reports directly to the Area Director (see Figure 4C). He "represents" the Assistant
Secretary for Community Planning and Development. (At the insuring office, the Chief
Underwriter serves as Environmental Clearance Officer and acts as principal advisor to the
Insuring Office Director on environmental affairs.) This position is usually filled by a
person whose training in noise is minimal. Duties include:
* reviewing all environmental clearances;
* giving advice to HUD personnel completing the environmental clearance forms; and
* drafting EIS's.
A staff of appraisers and underwriters in the Housing Division are charged with complet-
ing the forms and doing the actual work. These people sometimes lack technical backgrounds
in specific areas for the various environmental evaluations for which they are responsible.
Because of the lack of acoustical expertise, time and resources, HUD is often dependent on
the developers to supply information relating to noise assessments. HQwever, all noise data
supplied by a developer are evaluated for accuracy and compliance with the HUD policy.
In addition, field staff persons rely heavily on the Noise Assessment Guidelines which were
developed for use by laymen in evaluating proposed sites in lieu of on-site measurements.
B-5
-------
APPENDIX C
WHERE TO GO TO GET INFORMATION ON HUD NOISE POLICY
-------
WHERE TO GO TO GET INFORMATION ON HUD NOISE POLICY
ORGANIZATIONAL
ELEMENT
HUD Office - Headquarters
of Community
Planning and
Development,
Office of
Environmental
Quality (OEQ)
HUD Office - Headquarters
of Policy
Development
and Research,
Division of
Community
Development
and Manage-
ment Research
ADDRESS
Room 7258
451 7th St.
S.W., Wash.,
D.C. 20410
Room 8 162
451 7th St.
S.W., Wash.,
D.C. 20410
PERSONNEL
NAME
Mr. Richard Broun
Mr. James Miller
X
Mr. George Winzer
TITLE
Director,
Office of
Environmental
Quality
Director,
Environmental
Planning Div.,
Office of
Environmental
Quality
Chief,
Environment
and Land-Use
Research
TELEPHONE
NUMBER
202/755-6308
202/755-6201
-
202/755-0268
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WHERE TO GO TO GET INFORMATION ON HUD NOISE POLICY
ORGANIZATIONAL
ELEMENT
Region I
Region II
Region III
ADDRESS
Room 800
JFK Federal
Bldg.,
Boston,
MA 02203
26 Federal
Plaza, N.Y.,
NY 10007
Curtis Bldg.,
6th &
Walnut St.,
Phil., PA
19106
PERSONNEL
NAME
Mr. David Prescott
Mr. William Davis
Mr. Marvin
Krotenberg
Mr. Robert
Dinney
Mr. Lawrence
Levine
TITLE
ECO*
ARA/CPD**
ESO***
Acting
ARA/CPD
ESO
TELEPHONE
NUMBER
617/223-4327
212/264-4138
21.2/264-8088
215/597-2512
215/597-2636
* ECO, Environmental Clearance Officer
** ARA/CPD, Assistant Regional Administrator for Community Planning and Development
*** ESO, Environmental Standards Officer
-------
WHERE TO GO TO GET INFORMATION ON HUD NOISE POLICY
2
ORGANIZATIONAL
ELEMENT
Region IV
Region V
,
Region VI
ADDRESS
Pershing
Point Plaza,
1371 Peach-
tree St.,
N.E.,
Atlanta, GA
30309
300 South
Wacker Dr.,
Chicago,
IL 60606
Earle Cabell
Federal
Bldg., U.S.
Court House
1100
Commerce
St., Dallas,
TX 75242
PERSONNEL
NAME
Mr. Charles Staub
Mr. Ivar Iverson
vlr. Richard
Raiser
Mr. Harry Blus
AT. Victor J.
iancock
Mr. Otis Tremble
TITLE
ARA/CPD
ESO
ARA/CPD
ESO
ARA/CPD
ESO
TELEPHONE
NUMBER
404/257-4468
404/257-3521
312/353-1680
312/353-7867
214/749-7466
214/749-7471
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WHERE TO GO TO GET INFORMATION ON HUD NOISE POLICY
ORGANIZATIONAL
ELEMENT
Region VII
Region VIII
Region IX
ADDRESS
Federal
Office
Bldg.,911
Walnut St.,
Kansas
City, MO
64106
Federal
Bldg.,1961
Stout St.,
Denver, CO
80202
450 Golden
Gate Ave.,
P.O. Box
36003, San
Francisco,
CA94102
PERSONNEL
NAME
Mr. Emil L.
Huber, Jr.
Mr. Harry Bearman
Mr. Robert J.
Matuschelc
Mr. Walter Kelm
Ms. Elizabeth
Tape sco tt
Mr. Dale James
Mr. Joseph
Furstenthal
TITLE
ARA/CPD
ESO
ARA/CPD
Dir., EQD
ARA/CPD
ESO
TELEPHONE
NUMBER
816/758-3192
816/758-3192
303/327-3102
303/327-3102
415/556-5720
415/556-7952
415/556-7911
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WHERE TO GO TO GET INFORMATION ON HUD NOISE POLICY
ORGANIZATIONAL
ELEMENT
Region X
ADDRESS
ARCADE
Plaza Bldg.,
1321 2nd
Ave.,
Seattle,
WA98101
PERSONNEL
NAME
Mr. Robert C.
Scalia
Mr. Ry Tanino
Mr. Creighton
Schacht
TITLE
ARA/CPD
ESO
V
TELEPHONE
NUMBER
206/399-7790
206/399-4521
206/399-4521
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APPENDIX D
STATUS OF HUD REGULATIONS, INSTRUCTIONS, AND
ISSUANCES RELATING TO NOISE ABATEMENT
-------
HUD REGULATIONS, INSTRUCTIONS, AND ISSUANCES RELATING TO NOISE ABATEMENT
SUBJECT AREA
1 . Noise Policy
(general)
TITLE AND TYPE OF ISSUANCE
INTERNAL
MEMORANDA AND
INSTRUCTIONS
Internal Memoranda
Modifying/ clarifying
1390.2
From To
l)OCGSa ALLRA'sb
ALL ECO'sc
2) OCGS ALL RA's
ALL ECO's
GUIDELINES
AND MANUALS
HUD Circular
1390.2, "Noise
Abatement and
Control: Depart-
ment Policy,
Implementation
Responsibilities
and Standards;"
8/71
Amendments
9/71
Date
2/9/72
3/21/72
NOTICE OF
PROPOSED
RULEMAKING
RULE
(STANDARD OR
REGULATION)
DESCRIPTION
Contains the basic noise
policy with quantitative
standards.
Minor corrections.
Waives requirement that
all projects in "normally
unacceptable" zone re-
quire an EIS"; HUD will
determine on a case-by-
case basis.
Clarifies the meaning of
the standards; states
advice on whom to con-
tact for data at airports.
a OCGS, Office of Community Goals and Standards.
b RA, Regional Administrator.
c ECO, Environmental Clearance Officer.
-------
HUD REGULATIONS, INSTRUCTIONS, AND ISSUANCES RELATING TO NOISE ABATEMENT
SUBJECT AREA
1 . Noise Policy
(general)
(continued)
TITLE AND TYPE OF ISSUANCE
INTERNAL
MEMORANDA AND
INSTRUCTIONS
FROM TO
3) OCESd OCPMe
4)OCES OCPM
5) OCES ALL RA's
6) OCPM HPMCf
7) OCES HUD
Region II
8) OCPM Region II
GUIDELINES
AND MANUALS
DATE
4/14/72
4/27/72
5/16/72
5/16/72
3/5/73
3/15/73
NOTICE OF
PROPOSED
RULEMAKING
RULE
(STANDARD OR
REGULATION)
DESCRIPTION
For clarification, discusses
1) how the standards were
formulated and 2) some
of the problems in field
implementation.
Contains report of actions
to resolve field misunder-
standings.
Contain guidance on use
of sound level meter.
Notes misunderstandings
by field personnel;
request HPMC issue
special field instructions
on noise policy.
Clarifies meaning of HUD
policy applying to
"substantial rehabilitation".
Discusses how HUD
policy to be phased
into the processing of HUD
applications.
9
to
, Office of Community and Environmental Standards
eOCPM, Office of Community Planning and Management
fHPMC, Office of Housing Production and Mortgage Credit
-------
HUD REGULATIONS, INSTRUCTIONS, AND ISSUANCES RELATING TO NOISE ABATEMENT
SUBJECT AREA
1 . Noise Policy
(general)
(continued)
TITLE AND TYPE OF ISSUANCE
INTERNAL
MEMORANDA AND
INSTRUCTIONS
FROM TO
9)OCPD& ALLRA's
10) OCPD All assis-
tant RA's
for com-
munity
planning
and de-
velopment
11) OUSh All assis-
tant RA's
for HMPC
and for
CBP.
12) OCPD Region V
GUIDELINES
AND MANUALS
DATE
4/3/74
2/19/75
2/19/75
11/10/75
NOTICE OF
PROPOSED
RULEMAKING
RULE
(STANDARD OR
REGULATION)
DESCRIPTION
Discusses how policy
applies to hospitals and
group practice facilities.
States HUD headquarters
will review new area-
wide noise data (e.g.,
Airport Noise Contours)
before implementation.
Modifies policy so that
HUD will now accept
subdivisions applications
where 10% of the subdi-
vision is in "normally
unacceptable" category
and its impact on adja-
cent areas is acceptable.
Clarification on how
noise standards apply to
community development
block grant program.
8OCPD, Office of Community Planning and Development
, Office of Underwriting Standards
-------
HUD REGULATIONS, INSTRUCTIONS, AND ISSUANCES RELATING TO NOISE ABATEMENT
SUBJECT AREA
2. Tools to
implement
noise policy
TITLE AND TYPE OF ISSUANCE
INTERNAL
MEMORANDA AND
INSTRUCTIONS
GUIDELINES
AND MANUALS
HUD "Noise Assessment
Guidelines", 8/71
Technical Background
for Noise Assessment
Guidelines, 1971
"The HUD Noise
Measurement System"
(undated)
NOTICE OF
PROPOSED
RULEMAKING
RULE
(STANDARD OR
REGULATION)
DESCRIPTION
Provides a tool for
personnel without
acoustical training to
perform preliminary
estimates of the noise
exposure of a site in rela-
tion to HUD noise stan-
dards. When the use of
the guidelines indicates a
potential noise problem
in need of further resolu-
tion, actual noise measure-
ments can supplement
existing information.
Contains technical infor-
mation upon which
guidelines are based.
Contains an explanation
of the HUD Noise Measure-
ment System which can be
used to provide actual data
on the existing noise expo-
sure of a site in accordance
with HUD's general noise
exposure standards.
-------
HUD REGULATIONS, INSTRUCTIONS, AND ISSUANCES RELATING TO NOISE ABATEMENT
SUBJECT AREA
2. Tools to
Implement
noise policy
(continued)
3. Environmental
Policy
TITLE AND TYPE OF ISSUANCE
INTERNAL
MEMORANDA AND
INSTRUCTIONS
GUIDELINES
AND MANUALS
"Aircraft Noise Impact
Planning Guidelines for
Local Agencies", 1972
NOTICE OF
PROPOSED
RULEMAKING
RULE
(STANDARD OR
REGULATION)
HUD Departmental
Handbook 1390.1
"Departmental
Policies, Responsi-
bilities and
Procedures for
Protection and
Enhancement of
Environmental
Quality", Federal
Register, Vol. 38,
No. 137,7/18/73
DESCRIPTION
The manual analyzes
information obtained in
joint HUD - DOT metro-
politan aircraft noise
abatement studies in a
form that provides a
practical tool to localities
in developing a compre-
hensive aircraft noise
abatement program
through land use
planning.
Contains general policy
for environmental assess-
ments for all HUD actions
except Community
Development Block Grant
Program.
ISl
-------
HUD REGULATIONS, INSTRUCTIONS, AND ISSUANCES RELATING TO NOISE ABATEMENT
SUBJECT AREA
TITLE AND TYPE OF ISSUANCE
INTERNAL
MEMORANDA AND
INSTRUCTIONS
GUIDELINES
AND MANUALS
NOTICE OF
PROPOSED
RULEMAKING
RULE
(STANDARD OR
REGULATION)
DESCRIPTION
3. Environmental
Policy
(continued)
Amendments
1.
2. 4/26/76
HUD Handbook 4010.1,
Chapter 8, "Procedure
for Environmental
Clearance by HUD
Insured Projects,
Subdivisions, and Low
Rent Projects",
11/4/74
Federal Register,
Vol. 39, No. 213,
11/14/74
Federal Register,
Vol. 41, No. 114,
6/11/76
Incorporation of changes
to expedite processing
of housing project appli-
cations.
Incorporation of further
changes in environmental
review requirements to
expedite and clarify
processing.
Provides procedure for
processing environmental
clearances for HPMC
proposals only; eliminates
need for sponsor to sub-
mit an ECO-1; provides
for a simplified form as
vehicle for normal and
special environmental
clearances.
-------
HUD REGULATIONS, INSTRUCTIONS, AND ISSUANCES RELATING TO NOISE ABATEMENT
SUBJECT AREA
3. Environmental
Policy
(continued)
TITLE AND TYPE OF ISSUANCE
INTERNAL
MEMORANDA AND
INSTRUCTIONS
-
GUIDELINES
AND MANUALS
NOTICE OF
PROPOSED
RULEMAKING
"Environmental Review
Procedures for Com-
munity Development
Block Grant Program,
Federal Register,
10/10/74
Amendments
1.
2. 2/11/76
3. 3/9/77
RULE
(STANDARD OR
REGULATION)
Federal Register,
1/7/75
7/16/75
6/30/76
DESCRIPTION
Contains regulations
governing environmental
review procedures to be
undertaken by applicants
for funds under Title I
of the Housing and Com-
munity Development Act
of 1974
Change above rule to
"interim rule" with
certain additional
changes.
Environmental review
requirements for finan-
cial settlements of urban
renewal projects.
Where CDBG applicant
lacks legal capacity to
carry out environmental
review responsibilities,
HUD will.
-------
HUD REGULATIONS, INSTRUCTIONS, AND ISSUANCES RELATING TO NOISE ABATEMENT
SUBJECT AREA
TITLE AND TYPE OF ISSUANCE
INTERNAL
MEMORANDA AND
INSTRUCTIONS
GUIDELINES
AND MANUALS
NOTICE OF
PROPOSED
RULEMAKING
RULE
(STANDARD OR
REGULATION)
DESCRIPTION
4. Environmental
Guidance
(noise-related)
"Environmental
Reviews at the Com-
munity Level, a
Program Guide, 10/75
"Environmental
Assessments for
Project Level Actions,
A Guidance Document
ment", 4/74
"Interim Guide for
Environmental
Assessment Field
Office Edition, Final
Report # H-2080R",
6/75
Contains guidance for
grantees under the Com-
munity Development
Block Grant (CDBG)
Program in carrying out
their responsibilities for
environmental review, of
projects funded by
Title I.
Contains guidance for
HUD personnel in making
environmental assessments;
also useful for State and
local agencies as well as
citizen groups.
Are technical guidelines
for a wide variety of
situations; are designed
to be circulated widely
to State and local agen-
cies in implementing
Community Development
Block Grant Program.
-------
HUD REGULATIONS, INSTRUCTIONS, AND ISSUANCES RELATING TO NOISE ABATEMENT
SUBJECT AREA
5. Planning
Grant
Program
("701"
Program)
TITLE AND TYPE OF ISSUANCE
INTERNAL
MEMORANDA AND
INSTRUCTIONS
GUIDELINES
AND MANUALS
Notice, Federal
Register ,2/ 1/71.
"Guidelines for Com-
pliance with Land Use
and Housing Element
Planning Requirement!
Under Comprehensive
Planning Assistance
Program.
NOTICE OF
PROPOSED
RULEMAKING
^
Comprehensive
Planning
Assistance,
Federal Register,
10/6/76
RULE
(STANDARD OR
REGULATION)
Comprehensive
Planning
Assistance,
Federal Register,
2/1/77
DESCRIPTION
Provides examples of
activities that States and
cities may conduct in
satisfaction of the land
use and housing element
requirements of the "701"
program.
Establishes a process
whereby an applicant
may request approval
of the land use and
housing elements in its
comprehensive plan.
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APPENDIX E
HUD ENVIRONMENT CLEARANCE
FORMS (HOUSING)
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cco-i/i-Hmc
Oclobn ltT4
U. S. DErARTMINT OF HOUSING AND URIAH DEVELOPMENT
NORMAL AND SPECIAL KNVIRONMF.NTAI.CLEARAMCK
FOR SUIIDIVISION AMI Ml.l.TIKAMILY PKOJKCTS
A. PROJECT IDENTIFICATION;
Applicant's Name:
City urCounty:
Phone: Project Name:
Street Address:
State:
ZIP Code:
FHA File No.
Project/Subdivision Location:
Number of Lots or Units Proposed: Size of Tract (acres/sq. It.I:
Demand for housing in this area: Adequate | | Reject i I . If reject, [io to Section I.
For Subdivision Only:
Has work started? Yes I ] No \ \ It work has started: Grading is "'»Completed:
Street improvements are % Completed. Number of homes under construction:
Number of homes completed:
ENVIRONMENTAL ANALYSIS
Evaluate project and assign a rating: A. H. C. or NA. iSee Instructions.
li. COMPLIANCE WITH STANDARDS;
1. Have A-95 review requirements been met? Yes ^ J No I I In process
2. U the project in compliance with the local and regional comprehensive plans? Yes I I No \_LJ
3. Is the project in compliance with local /oning ordinances? YcsJ 1 1 No \ |
4. Compliance with applicable standards:
Source/
Rating Documentation
Source/
Documentation
a. Historic Properties ,
b. Noise
c. Flood Plain
d. Coastal Zone
e. Wetlands
f. Air (Duality
p. Other spvdfy •
It the project in violation of applicable standards? Yet LJ No LJ
Should the project be rejected? Yes i I No I I If reject, go to Section I. If not. continue the
environmental assessment (Section C).
C. SITE SUITABILITY ANALYSIS:
Ratine
Source/
Documentation
Ratini'
Source/
Documentation
1. Slope stability
2. Foundation conditions
3. Terrain
4. Soil permeability
S. Ground water
6. Natural hazards
7. Man-made hazards
8. Nuisances
9. Compatibility in use and
scale with environment
10. Neighborhood character
Pace 1 of 4
ECO2/3-HPMC
B-l
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Rating
Set vices and Facilities (Access)
1 1. Elementary school
12. junior and senior
high school
1 \ Fmplnymrnt
14. Shopping
1 5. Park, playground
16. Pnlirr *nA firi-
17. Healthcare/
sofia! services ...._
18. Transportation
19. Other services:
Source/
Utilities Rating Documentation
20. Water simply cyttcm
21. Sanitary scwcr system
22. Storm si_>wrr system
lA^"11* 1 *""«/
(Adequacy) Documentation
Source/
Rating Documentation
23. Solid watte disposal
24. Other utilities
«. Paved access to site
1). Docs project site exceed spccul clearance size thresholds? Yes | | No | | If yes. continue review (Section E). If not.
go to St-ction F. (Sec Chapter 8. Handbook 4010.1.)
K. IMPACTS ON THE KINV1RONMENT (SPECIAL CLEARANCK):
N
I. Impact on unique geological features or resources
2. Impel on rock and soil stability
3. Impact on soil crodability
4. Impact on ground water (level, flow and quality)
5. Impact on open streams and lakes
6. Impact nn plant and animal life
7. Impact on energy resources
8. Impact on social fabric and community structures
9. Displacement of persons or families
10. Impact on aesthetki and urban design
Rating
Source/
Documentation
11. Impact on enisling or programmed community facilities:
„ . Source/
Hating Documentation
a. Schools
b. Parks, playgrounds and
open space
c. Health care and social
services
d. Community services
e. Transportation
Rating
Source/
Documentation
f. Water supply system
g. Sanitary sewer system
h. Storm sewer system
i. Solid waste disposal system
E-2
ECO-2/3-HPMC
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Page 3 of 4
F. Will the project have notable impacts on the environment? Yes I I No I I If yes. is further analysis
necessary? Yes I I No I i Are there alternative site designs that can be considered? Yes I I No I I
COMMENT:
j. Assess the following conditions: (a) Does the project form part of a larger development pattern? Yes | | NH ] [ ; (b) Is the
project likely to ttimulatc additional development? Yes | | No | [ ; (c) Arc there other developments planned which arc.
or will be impacted by the project? Yes I I No I I
If tny of the above area is answered "Yes" indicate how the cumulative environmental impact of the larger development will be
addressed. EIS Special Environmental Clearance _^_^ 701 planning funds other . Should
this project be delayed until the cumulative impacts arc accounted for? Yes I 1 No | |
COMMENT:
H. LOCATION AND MARKET:
t. Marketability is : Acceptable Reject If reject, go to Section I.
2. Most marketable price or rental range is S to S .
3. Most marketable units 0 • 2 BR
3BR
,*
4 or more ^_____^__
4. For Subdivisions:
Estimated market price of typical lot S to S .
Typical lot size ft. x ft.
Local Authorities:
I. Local authorities have have not approved tentative map.
2. Local officials contacted:
Name: Title: Phone:
Name: . Title: Phone:
3. Information obtained and date obtained:
ECO-2/3 HPMC
E-3
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Page 4 of 4
I. ENVIRONMENTAL FINDINGS! (Check applicable items)
L_3 Reject
LJ EIS Required
I I No EIS required. Project is consistent with HUD
environmental policies and requirements and is
not a major Federal action significantly affecting
the quality of the human environment.
L_J Further environmental review is required. Backup
material is appended. .Yes [ | No | |
COMMENT:
For Subdivisions Only
I I Issue Interim Form ASP-5.
Special problems involve:
Sanitary engineering I I
Site engineering L*J
Site planning I—J
Architecture ' I
Q] Issue ASP-6.
VA has been contacted. Ye8|~| No|~|
Nam
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TECHNICAL REPORT DATA
{Please read Instructions on the reverse before completing)
REPORT NO.
EPA
2.
3. RECIPIENT'S ACCESSION-NO.
». TITLE AND SUBTITLE
Federal Noise Program Reports Series, Vol II
Department of Housing And Urban Development:
Noise Abatement And Control Policy
5. REPORT DATE
April 1977
6. PERFORMING ORGANIZATION CODE
. AUTHOR(S)
8. PERFORMING ORGANIZATION REPORT NO.
J. PERFORMING ORGANIZATION NAME AND ADDRESS
10. PROGRAM ELEMENT NO.
It. CONTRACT/GRANT NO.
12.SPONSORING AGENCY NAME AND ADDRESS
13. TYPE OF REPORT AND PERIOD COVERED
U. S. Environmental Protection Agency
Office Of Noise Abatement And Control
Washington, D. C. 20460
14. SPONSORING AGENCY CODE
IS. SUPPLEMENTARY NOTES
16. ABSTRACT
This report discusses some of the features and problems
of the Department of Housing and Urban Development's Noise
Abatement and Control Policy. Its purpose is to serve as
aid to persons concerned with noise abatement and control
activities in the Federal Government.
17.
KEY WORDS AND DOCUMENT ANALYSIS
DESCRIPTORS
b.iDENTIFIERS/OPEN ENDED TERMS
c. cos AT I Field/Group
Airport Noise, highway
noise, land use planning,
railroad noise
18. DISTRIBUTION STATEMENT
19. SECURITY CLASS (This Report)
21. NO. OF PAGES
2O. SECURITY CLASS (Thispage)
22. PRICE
EPA Form 2220-1 (9-73)
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