ML20155H437

Statement of Matl Facts in Dispute.* Unexecuted SA Jonas Affidavit & Supporting Documentation Encl

ML20155H437
Person / Time
Site:	Seabrook
Issue date:	10/11/1988
From:	Jonas S MASSACHUSETTS, COMMONWEALTH OF
To:
Shared Package
ML20155H431	List: ML20155H427 ML20155H432 ML20155H437 ML20155H444 ML20155H449
References
OL-1, NUDOCS 8810200171
Download: ML20155H437 (39)

Text

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o UNITED STATES OF AMERICA NUCLEAR REGULATORY COMMISSION ATOMIC SAFETY AND LICENSING BOARD Before Administrative Judges:

Sheldon J. Wolfe, Chairman Emmeth A. Luebke Dr. Jerry Harbour

)

In the Matter of )

)

PUBLIC SERVICE COMPANY OF ) Docket No.(s)

NEW HAMPSHIRE, ET AL. ) 50-443/444-OL-1 (Seabrook Station, Units 1 and 2) ) On-site EP

) October 11, 1988

)

STATEMENT OF MATERIAL FACTS IN DISPUTE Pursuant to 10 C.F.R. S 2.749(a), tne Massachusetts Attorney General ("Mass AG") submits the following statement of material facts as to which he contends there exist a genuine issue to be heard. For the Board's convenience, the format used here is to follow the format of the Applicants by indicating which of the factual statements listed by the Applicants the Mass AG disputes and, where applicable, by adding other statements which the Mass AG contends are in dispute.

BASISmAcl THe Mass AG does not dispute the facts listed in paragraphs 1, 2, 5, 6, 7, 8, 9, 16, and 18. The Mass AG does dispute the statements made in paragraphs 4, 10, 11, 17 and 19. With 0010*00171 2 001011 gDR ADOCK0500pg3

4 respect to the statement made in paragraph 3, the Mass AG believes that in the beach areas the siren public address or message mode must be used for alert and notification. The Mass AG believes that the statements made in paragraphs 12 to 15 are not relevant because these four areas do not comprise all of the areas in the Massachusetts EpZ uncovered by required siren coverage under the Applicants' system.

19a. It is not acceptable for each VANS siren to put out 134dB of sound output. Rather, FEMA-rep-10 requires that the sound output be limited to 123dB.

19b. If the VANS sirens put out only 123dB of sound output, under its existing configuration the VANS system will not provide coverage to essentially 100% of the population in the Massachusetts Ep2.

EASIS A.2 The Mass AG does not dispute the statemerts made in paragraphs 20, 21, and 22. The Mass AG does not dispute that the Governor of Massachusetts and the town officials of Am esbury will use their best ef forts to protect the populace in response to a radiological emergency at Seabrook Station.

The Mass AG does dispute that those best efforts will include allowing Applicants to activate VANS sirens.

BASIS _Ad THe Mass AG does not dispute the statements made in paragraphs 24, 26, 27, and 32. The Mass AG does dispute the statements made in paragraphs 29, 30 and 31. With respect to I

i e

the statement in paragraph 25, the Mass AG does not dispute that the review mentioned was conducted but does dispute that it verified that there is sufficient room at each of the locations to deploy the outriggers and raise the boom. With respect to the statement made in paragraph 28, the Mass AG disputes that the VANS truck can be adequately set up on the incline at VL-06.

32a. With outriggers extended, a VANS truck parked at the side of the road at VL-12 will extend at least six feet into the road.

32b. The acoustic locations VL-06 and VL-07 are inclined where the trucks would set up. The crane manufacturer's instructions are clear and unequivocal not to operate the equipment on an inclined surface.

32c. The grass and dirt surface of VL-12 is uneven and inappropriate for operation according to the crane manufacturec's specifications.

32d. Acoustic locations VL-06, VL-07 and VL-12 are unpaved roadsides which will be blocked during substantial parts of the winter by piles of snow cleared from the roads. VL-03 will be similarly inaccessible during the wintertime. The Applicants have made no provision for prompt and effective clearing of these areas during snow conditions.

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l BASlS_A.A The Mass AG cannot dispute the statements made in paragraphs 33 through 41.

BASIS A.5 l

The Mass AG does not dispute the statements made in paragraphs 43, 46, 48, 49, 51, 53, 57, 58, 59 and 60. The Mass i AG disputes the statements made in paragraphs 42, 50 and 52.

With respect to the statements made in paragraph 44, the Mass AG contends that the relevant time for the Board's consideration is the maximum time which is approximately 54 seconds.

With respect to the statements made in paragraph 45, because the staging area facilities have not been constructed, there is no reason to expect no appreciable delay in exiting the facility. In other words, w!'hout construction of the staging areas and actual testing there is no basis for the "tatements made by the Applicants in paragraph 45.

With respect to paragraph 47, given the conservatism mandated by FEMA-rep-10, the maximum transit times for the acoustic locations are the relevant ones, not the average transit times. Therefore, the transit study of the Applicants does not show that the transit times for acoustic locations VL-02 through VL-15 are "well below the ten minute goal."

With respect to the statements in paragraph 54, winter weather conditions would delay 7 of the 16 VANS trucks beyond i

i the ten minute objective. As indicated by the Mass AG's dispute of the statements made in paragraph 52, the Mass AG believes that the Applicants have understated the frequency of winter adverse weather conditions.

With respect to the statements in paragraph 55, again using the conservatism required for the calculations, the estimated adverse winter transit time to VL-16 is only slightly less than 20 minutes.

With respect to the statements in paragraph 56, the VANS system came into being because the Massachusetts fixed pole siren system was erected contrary to existing law.

60a. The Applicants' ten second period for driver alert does not include several actions required after staging area activation. Those actions will take at least 30 additional seconds to complete. Those actions are particularly important because only 16 VANS drivers will be available at any one time for the 16 VANS routes.

60b. Continuous snow coverage of at least one inch in the area has lasted as long as 109 days or 29's of the year.

60c. Acoustic locations VL-01, VL-12 and VL-13 cover areas within 5 miles of the Seabrook Plant.

60d. The Applicants' times of 1 minute for set up of the VANS trucks assumes that the set up time ceases when the crane is only pattially extended - to a 25 foot height.

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60e. The Applicants' -conclusion that initial notification can be completed in the nonwinter months in 14 minutes and 50 seconds does not include the time necessary for an informational or instructional message. The Applicants intend to provide such messages by use of the EBS radio network. l l

60f. The initial EBS message used in the June 28 and 29, t 1988 exercise took slightly over 2 minutes to read, f

609 With additions over the Applicants' calculations of 2

'l minutes for instructional messages, 30 seconds for driver alert and 15 seconds for driver dispatch, the following will occur:

Acoustic locations VL-01, VL-12, VL-13, and VL-16 will j exceed the 15 minute requirement based on the Applicants'  ;

average route transit times as indicated in Table 2 of the

• Desmarais Affidavit.  ;

Acoustic locations VL-01, VL-03, VL-08, VL-09, VL-10, ,

VL-11, VL-12. VL-13 and VL-16 will exceed the 15 minute i requirement based on the Applicants' maximum route trans:t t times as indicated in Table 2 of the Desmarais Affidavit. j Acoustic locations VL-01, VL-03, VL-08 through VL-13 and VL-16 will exceed the 15 minute requirement based on the Applicants' average wintertime route transit times as I indicated at page 6 of the Leiberman Affidavit.

BASIS A.6 The Mass AG does not have information available to him to dispute the statements made in paragraphs 61 through 69.  !

I BAS 15 L1 r The Mass AG does not dispute the statements made in paragraphs 71 and 73. The Mass AG does dispute the statements i made in paragraphs 70, 72 and 74.

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74a. The 123dB limit in NUREG-0654 was imposed to prevent discomfort as well as injury to individuals. The VANS sirens exceed the 123dB limit.

74b. Individuals around the VANS sirens will be subject to sound levels up to 133dB by virtue of the loudness of the siren 3 and reflections off of nearby buildings.

7:c. Twelve of the sixteen acoustic locations are in residential areas or other areas where members of the public can be expected to be outs.de of permanent structures and well w'-  :

. c a discomfort range of the VANS sirens.

D AS LS_A.1

""e bass AG does not dispute the stetements made in

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/ grap. 77. The Mass AG does dispu'o the statements made in p;mgraphs 75, 76 and 78.

78a. The VANS siren loudspeaker has directional characteristics such that the loudspeaker produces its maximum signal output along its primary output axis and the output diminishes as the angular offset from the primary axis increases. As a result, Massachusette residents will hear signals which vary by 260B or more over short periods of time as the siren rotates. Therefore, the siren signal will not be

a3 to 5 minute steady signal as required by NUREG-0654.

78b. Because of the loudspeaker's directional characteristics the Applicants' map erroneously assumes that approximately circular coverages will exist for the sirens. In fact, oval coverages will exist. As the sirens rotate randomly l 1 i

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4 the system will not meet the requirement for steady sound pressure levels exceeding 70dB where the population exceeds 2,000 persons per square mile and 60dB in other uninhabited areas.

BASIS.A 9 The Mass AG does not dispute that the Applicants do not use the VANS sirens for voice messages but believe that in the beach areas they must.

BASlS_A.10 The Mass AG does not dispute the statements made in paragraphs 80 and 81.

BASIS A.ll The Mass AG does not dispute the statements made in paragraphs 82 through 86.

86a. During periods of operation the Applicants intend to have only one driver per VANS truck at each staging area.

Without redundant drivers available to fill in on a timely basis the Applicants' assumption of immediate notification to the drivers in the event of an emergency is erroneous.

EASIS A.14 I

The Mass AG does not dispute the statements made in paragraphs 87, 88, and 89. Again, the Mass AG believes that the Applicants must use the message or public address mode in the beach areas.

A DASIS_E The Mass AG does not understand the Applicants' reference to "a backup to a backup." The Mass AG does not dispute the ,

I remaining portion of the statement in paragraph 90. Because the Applicants have not addressed any material facts with j regard to the airborne system, the Mass AG similarly does not j address any such facts.

JAMES M. SHA!1t1011 ATTOR!1EY GEt1ERAL COMMOffWEALTH OF MASSACHUSETTS g Yh

'Steplien A. Jorfas Deputy Chief Public Protection Bureau Office of the Attorney General One Ashburton place Boston, MA 02108 (617) 727-2200 Dated: October 11, 1988 9_

g . .

t UNITED STATES OF AMERICA NUCLEAR REGULATORY COMMISSION ATOMIC SAFETY AND LICENSING BOARD Before Administrative Judges:

Sheldon J. Wolfe, Chairman Emmeth A. Luebke l Dr. Jerry Harbour l

t

) i In the Matter of )

)

PUBLIC SERVICE COMPANY OF ) Docket No.(s) 4 NEW HAMPSHIRE, ET AL. ) 50-443/444-OL-1 .

(Seabrook Station, Unit. 1 and 2) ) On-site EP  !

) October 11, 1988

)

AFFIDAVIT OF STEPHEN A. JONAS k I

i I, Stephen A. Jonas, depose and say as follows

1. I am an Assistant Attorney General end Deputy Chief of '

the Public Protection Bureau for the Massachusetts Department of the Attorney General. I am familiar with the matters set l forth in this affidavit.

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2. Attached as Exhibit A hereto are true and accurate  :

copies ol' pages 85 and 86 of the deposition I conducted of

{ Edward Desmarais on July 28, 1988.

3. Attached as Exhibit B hereto is a true and accurate  !

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) copy of the initial EBS message released by the New Hampshire Yankee Offsite Response Organization during the June 28-29,

1988 exercise. I I

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3. Attached as Exhibit C hereto is a true and accurate copy of FEMA Publication tio. CPG l-17 as I received it from Jeffrey P. Trout of Ropes & Gray.

Signed under the pains and penalties of perjury this lith

', day of October, 1988.

Steph'en A.'Jonas i

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EXHIBIT A ~

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Q. Would your purchasing people tell you or 2 would yoa otherwise become aware of communications 3 between them and Whelan with regard to dual sirens?

4 A. Normally they would contact us. However, 5 there may be some minor negotiations, terms.

6 communications, that : 'm not aware of. '

7 Q. But you are not aware of any communications a between New Hampshire Yankee and Whelan within the 9 last month?

0 A. No.

Q. Are the six staging areas operational?

2 A. Can you define that, please?

3 Q. Are they operational in the respect inat

4 they are ready for use is staging areas as

5 contemplated in the design report?

16 A. They are not.

7 Q. What remains to be done to put them into

8 , that state?

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9 A. There are certain physical modifications 20 that we will make to the staging area. depending on 21 each of the staging areas, depending on their 22 ex

sting conditions. We will also make these 23 fac:;ities available or brought up to the standards 24 for a normal office environment and we will also put

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j the communications equipment in place.

2 Q. Do you nave any idea now long that w1;.

3 take for the last staging area to become operationa; 4 in that sense?

5 A. Depends on when we start.

6 Q. :f you start it today, how .ong would :t

~ ate?

3 .

A. Again, depending on the priority of tne 9

task, it cou;d conceivably be done in a range of

.0 t . r. e s , but under a high priority, it could oe done in a month or so.

.2 Q. Are there any plans to start that wors' 13 A. Yes.

4 Q. How specific are the plans in terms of a 15 starting date?

6 A.

Some of them are based on as a condition

7 for the lease, so that the owner has to make

3 l physical modifications as a condition far the ; ease.

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.3 i Q. Are all of these leased premises?

i 20 A. Yes.

2; Q. Who is the lessee and who is the lessor?

22 A. I'm not familiar with those terms 23 Q. :s New Ha pshire Yankee the lessee of all 24 of these?

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p 02A.1 EBS MESSAGE 9"cusetts Offsite AescenSe Organization of New Hampshire Yankee Fage 1 cf 2 11 G S I S A CRI LL * *

• DG S I5 A CRLIl * *

• DG S I S A LRIll SITE APIA DiDC72fCY t SEA 44tAL CBSLTE CF BTXJE3 A!O WI1CLITE PIII.GE) itC5SME (tuy 15 to Septs:ter 15)

Lut.e tW sage Peleased 06/aere Tire t'essage Released *A*n / g ,'g Q ,.

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.r The fof W.ing D%rvancy Brwdcast' System messegk das relnued by the

-  !'awic.'rasetts Of f sint-P(mprnse Organiihtien of New liartshire Yankee, urder aaucrity <;rranted q. tt,4 OcVertcr of Qchusetts.

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"A SIR AFIA DDGDCL hv t441 declared at Seabrock Htricar Pcwr Statien.

A SITE AFIA RUPJI2Cl tarits Oth('spne significant rulerute.cf radioactive ruterials cr?ald cocur, althou:th Arty releases are net expd.:'M to go teind le sels 'not ty the'L'rtited' states DTvirtroental Protecticri Agercy, except rear t.e Seit.rxk Statict) site Lahi.lary. (g

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Le ties ILetedtire'.Vankee of fsite Respcme orghdizatien has to$n' ndtified and is teruvitng t:> the prcbles. Ws How HartshiresYankee Of f site tesponse t' ire.ctcr is twiesiin site actriiticpq at this tiA ard is discussirg tre r ttuaticn with Massachusetts t officiald \, '. r '

As a procautien, the Ocwsmr cf tts has tooxvnrded the closin; cf teach aid park areadf .*frtd.Salistury* Flun Islard, imluding the Parker Faver !!aticnal WildlDi Pefugg Ferscns 'wt these beaches aid parks er visiting the naticvwl.A[ldlifgpafuge

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• q,#r V' S, should leave thcse areas irre1

,, , * , a ne n'e elesings of. the wildfile Fettge, beechos ard testiin areas are pncautiemry rmsures bahl en policy a$cpted lerg tefore Seabr:cx Statien

'. n3 cperaticnal.5,It 6 ai rut maan that a release of radiaticn bag cocurred er M ogrur." f; "In ailitien, remrqatcy inferraticn trccfrares are railed enrraally *4 8' residents of tr.e ccm.nltles ef SalistMrn Arieqht,p hLanc. Ntret%'".' 'a OM Ne'at%".' "J 1.1 Ne.tiur,TgG If ycM ar'e in arrf of theE4 tCaT15, it"M shCuld 1CC<

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-e47wRC EBS .

MESSAGE Massachusetts Offsite Aescense Organization of New HampsNre Page 2 cf 2 up tr,at ex;cncy information. If these are uravailable, infornaticn a.lso can te fcud in are teleF coe h teoks. Erglish tJd French energerc/

r.!:rratien flyers also have tunn rede available at teach f acilities ard rcIreatien areas. This inferration could tm helpful in understarriing fute.:re russages .

If yw knew of any neighters er co workers with hosrity cr languago pr blern, please infer:n t.'xes of this r.mssage. '

cnce again, Seabrtek Stati;n has declared a SITE ARIA DDGDCY.

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This nessace will te repeetod frcquently cn this staticn until rxNS, inf -ation is available. Stay tuned to this 12tS statico for the latest of ficial infcrruticn. f-

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Ifycua:ainanycftheNewMa.'rshi.N. eastern County ccertmities, ycu str.uld.tirn to a localaradio stat 2cn in New W. ira for N

ras accut ytur Qtyr -g  %(i

• AAs ciens reccrrorded 6 'this,thsage are liitarded cnly fer yrsons in cr. runities .nthin teri. til'es'og.'9eabco:A Staticn."

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CPG l-17 CUT 000R

'a'ARNING SYSTEMS GUIDE FE0 ERA' EMERGENCY MANAGEMENT AGENCY k'a shingt on , D . C . 2047 March 1980

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CPC 1-17 NOTE TO USERS OF TlIE TEMA CPG l-17 This publication supersedes the following portions of the Federal Civil Defense Guide Part I, Chapter 1. Appendix 3 Part E Chapter 1. Appendix 4, Annex 1 Also superseded are any other publications of FEMA and FEMA Regional Offices which are inconsistent with CPG 1-17 l

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CPG l-17 0 CUTDOOR WARNING SYSTZF.5 GUIDE .

Abstract This practical guide has been developed ec aid public officials in determining the requirements for outdoor warning systems, e

The Euide covers, in a simplified form, the principles of sound, systems and devices, ropagation and detection outdoorwarninfdoors,avoidinghazardouanoiseexposures of sound out o , and warning system planning, testing, and use, e

The guide is adapted frem Report No. 4100, Bolt 3eransk and A Newman Incorporated, Work Unit No. 2234E. produced under contract No. DCPA-01-78 C-0329 y Report No. 4100 is based upon a survey of the current literature Civil Preparedness on the subject, and upon discussions with has been performed. personnel and vendors. No experimental work e

The guide is a replacement for Federal Guide, part E. Chapter 1 Appendix 3. "Principles of Sound and Their Application to Jut-door Warning Systems," and Part E. Chapter 1. Appendix 4. Annex

1. "General Instructions for Determining Warning Coverage "

both published in December 1966, t

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,v. Ld CPG 1-17 CONTENTS PAGE I, PURPOSE ,,............................................

t ZZ, INTRODUCTION ,,,,,,.... ,,,,,,,,,,,,.................. 1 III, PRINCIPLES OF SOUND ................................., 1 A. TERMINOLOGY ,,,,,,.................,,,,.........., 1 3, ATTEN"ATION ...................................... 2 C. HEARING ,,.,,,, .................................. 2 IV. OUTDOOR WARNING SYSTEMS AND DEV!CES ,,,,.............. 3 A. SIRINS ........................................... 3

3. ELECTRONIC LO7DSPEAKER (OR VOICE / SOUND) S0"RCES ,, 3 C. HORNS AND WHISTLES ............................... 4 D. RATINGS AND SPECITICATIONS ,,,,,,,,,,,,., ........ 4 E. WARNING SIGNALS ............ ,,,,................. 4 V, BAS IC TACTS A30CT SOUND OUT OF DOORS . . . . . . . . . . . . . . . . . 3 A, ATTENUATION WITH CISTANCE ........................ 5 I. DIVERGENCE ................................... 5

2. ATTENUATION CAUSED BY GKotND ETTECTS ......... 5 3, BARRIERS ..................................... 6

4. EFTECTS OF VERTICAL TEMPERATURE AND WIND GRADIENTS: ATdOSPSERIC RETRACTION ........... 6

5. FOLIAGE ...... ............................... 6 i 6. ABSORPTION OF SCUND IN THE ATMOSPHERE ....... 7 7,

SUMMARY

...................................... 7 3, HEAPING ............ ............................. 7

1. LOCAL BARRIERS ..............................- 7

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2. BACKGROUND NOISE AND DETECTABILITY ........... 7

3. DELETERIOUS EFFECTS OF WALNING SOUNDS ........ 3 4 HEARING DAMAGE ............................... 3

5. S tW.A R Y . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3 C. ESTIMATING RANGE OF COVERAGE ..................... 3 VI. PLANNING AN OUTDOOR WALNING SYSTEM ................... 9 A. DETELMINING WARNING COVERAGE ..................... 9

3. SITING TO AVCID HAZARDOUS EXPOSURE ............... 11 VII. SYSTLM TESTING AND USE ............................... 14 A. KNOWLEDGE OF WARNINGS ............................ 14

3. TESTING / ALERT .................................... 17 C. PUBLIC INFORMATION CAMPAIGN ...................... 17 l

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LIST OF FIGURIS_

1 PAGE T8GURE 1 RATED OUTPUT OF WARNING DEVICE 10 IN d3(C) AT 100 TT, (30 =)

i TZGURE 2 MAP WITH CIBCLES CENTERID ON 12 SINGLE WARNING DEVICES I

l TIGURE 3 MINUid MOUNTING HEIGHT OF A 13 TYPICAL WARNING DEVICE TO AVOID l RISK OF HEARING DAMAGE To i

PEDESTRIANS (TOR HORIZONTAL BEAM)

TIGURE 4 MINIMUM DISTANCE TO AVOID RISK OF 16 HEARING DAMAGE TO OCCUPANTS OF ADJACENT B"ILDINGS LOCATED IN SOUND BEAM OF WARNING DEVICES

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OUTDOOR WARNING SYSTEMS CIDE

.. PURPOSE The purpcse of this uide is to set forth the basic princi.

.las of sound that are appftcable to audible oundeor warning

'evices and to describe a =ethod for pisnning and laying out an iffective outdoor warning system. This guide concentrates on the

. election, siting, and operation of audi51e outdoor warning devices.

.I. INTRODUCTION Audible outdoor warning systems (sirens, air horns, etc.) are in ossential cc=aonent of the Civil Defense Warning System (CDWS) s tablished by ef.a Federal Government to advise government agencies ind tha public of impending enemy attack or other disaster. Follow-

, .ng the detection of an attack or other hazard, information is fisseminated over the Federal Emergency Management Agency (FEMA) ledicated co=nunication network The National Warning System (RA'JAS) - to more than 2,000 locationn throughout the United States.

from these locatiens, tha publi: can bn infor:ed ef a potential tazard through the E=srgency Broadcast System (E35)3 ;V stations, 1

he news media, and other =eans.

l Cutdoor warning systa=s can advise people that a hatard exists tnd that they should deter =ine the nature of the hazard by listening

o the radio, etc. For . ore infor=ation en other aspects of the

0WS, see CPG 1-14 "Civil Preparedness, Principles of Warning,"

'une 30, 1977.

.II. PRINCIPt.ES CT SOUND

. A. Tar =inoloay - Since outdoor warning devices use sound to

! ilert listeners to danger, this section starts with a brief intro-tuction to the vocabulary and principles of aound.

o Sound is a form of cachanical energy that moves frem a source (a voice, a musical instru=ent, a stran) to a listener as tiny asci11stiens of pressure just abovo and below ateospheric pressure.

ihan people hear sounds, they can distinguish their loudness, their

ene or pitch, and variations of loucness and pitch with time. The loudness and pitch variations of somu sounds are recognized as having

ertain =sanings, such as with speech sounds.

1 e Instru=ents ustd to measure sounds give ths magnitudes of sounds in decibels (abbreviated here as dB(C)). This magnitude is

losely related to what we hear as loudness. Thus , an audible warn-Lng device that produces 110 d3(C) s, t 100 ft. (30 m) away sounds louder than one that produces only 100 d3(C) at the st=e distance.

\ll audible outdoor warning devices are rated in ter=s of their sound output at 100 Jt. in d3(C).

.: 3 n .p n s .c :.u.  ::

e Instru=ents can also =easure the frequency ce=ponents of a O sound in Hertz (Hz). They are closely related to what we hear as pitch. As discussed below, the frequency co=

frc= an audible outdoor warning device are i=ponents of the soundportant in determining how far that sound will carry through the air And how well it will be heard. Most audible outdoor warning devices produce sound within the frequency range fren about 300 Hz to about 1,000 Ha.

3. Attenuation - It is wel' known that sound decreases in magnitude (in loudness and in d3(C)) at greater distances fre= its scurce. This decrease is called attenuation with distance, and it is caused by a nu=ber of f actors described in Section V-A.

The a=ount et sound available to warn a itstenot can be esiculated sicply with the following equation:

o

' Amount of Sound

' Sound Cutput Attenuation Available to Warn, a Audible Warning minus with Distance,

.in d3(C) .

. device, in d5(C) . .in d5(C) s Thus, if it is known that an audible outdoor warning device produces 110 dB(C) at 100 ft. (30 =). and that the attenuation with distance is 25 dB(C), than the amount of sound left over to warn people is 110 - 25 d3(C), or 65 dB(C) .

C. Hearinz - Whether the a=ount of sound availab:.e to warn d people wil; indeed be sufficient to do the job depends upon several W factors. First, the warning sound must be audible above the a=bient, These ambient noises change constantly in or background, noises.

loudnessandgitch, depending uponthe Second, noise-producing warning sound activities in the must get the vicinity of t..e listener.

ottentien of the listener away from what he is doing. Nor=a!.ly, pecple "close out" of their =inds distracting sounds that are not i pertinent to what they are doing. A varning sound must penetrate this = ental barrier. Tests have shown that to attract a listener's 6etention away from what he is doing, a warning sound must be about 9 d5(C) greater than would be sufficient to make it cudible to so=e-

' cne who was concentrating on listening for it, and not doing any-thing else.

! All of these factors suggest that a warning sound must be loud: loud enough to overce=a attenuation with distance, to exceed l

l the background noise, and to attract attention. Yet it cannot be of some people too loud, or there is risk of injuring the hearinfn greater detail who listen to it. This risk, which is discussed in Section V-3, can occur when people are exposed to audible warn-ing sounds exceeding 123 d5(C) .

e

c3 '55 ;;:30 v .t :.:.s  :

/. OUTD00R '4AANING SYSTEMS AND DEVICES *

'4 hen a civil preparedness official buys an audible outdoor trning syste= for his cor.= unity, he will be purchasing:

o The sound =aking devices o The controls and equip =ent that operate the devices .

In this =anual, the evnerols and equi are not discussed.

tese vary with the =anufacturer and are co=p=entpletely described in i

mdors ' literature. The civil preparedness official should be sare, however, that the costs of the syste= will include both kinds

! ce=ponents, as well as installatico coste.

The sound-=aking devices the=selves can be of three different  ;

< pes:

l e Sirens . l e Electronic (loudspeaker) devices.

e Horns and whis tles ,

A. Sirens Sirens are by f ar the =os t widely used sound-=aking ivices for outdoor warning systa=s. Sirens are capable of nry intense sounds by chopping the flow of co= pressed gas (producing usually l

.r). The funda=enta. frequency (pitch) of a siren sound is deter.

.ned by the rate at which tne flow is chopped, in cycles per second.**

.rens ar2 powered by electric =otors, gasoAine engines, co= pressed

.r. or stes=. Electric-=otor driven sirens are tF.e most ec= con for

.vil preparedness purposes. l So=a sirens are nondirectienal that is, they continuously l cduce the sa=e sound in all directiens horizontally from the source. I I

.e =ost powerful strens, however, use a horn that radiates a beam i sound in a single direction. The horn is then rotated several I =es a =inute, so that the bea= sweeps through the entire area I

ound the siren. For a stationary listener, the sound fro = such a

.ren goes up and down in loudness as the horn sweeps around.

3. Electronic Loudspeaker (or Voice /So_und) Sources - Loud- ,

seaker sound sources have the advantaje that they can broadcast '

aices as well as siren like sounds. $herefore, they can be used to asus =essages as well as warning sounds to the public. However, teir sound output capability is less than that available fro surces, so that = ore sources =ay be required to cover the sa=:e siren area. I l

hile in the past funds for this purpose, l ho current TEMA budget therewereyederal=atchin!sandfuturebudgets centains no such fan l ay not include such funds. '

Sece sirens , known as two-tone sirens , generate two frequencies i simultaneously by using two atrilow chopping rates, ,

1

.____n _

I l

c3 'se w n 'w.c =.m =a I

further= ore, sound reflections from large surf aces or simultaneous cessages from several icudspeaker sources at different distances

y "garble" the signal so badly that some listeners will not be able

o understand voice messages.

C. Horns and Whistles - Air horns have the advantage that the sounds they produce cannot

/ehicles or . ire department beconfusedwiththoseofe=ergenc{

strans. When a suitable air sua yin tiready available, the cost of a horn installation is very lpow. In addition, the air horn requires a minimu= of maintenance and, because Lt weighs very little, is easily installed.

In the absence of an air supply or co==arcial storage cylinders, i compressor, storage tanks, and related appurtenances are necessary.

these increase costs substantially, for horns require more power than nny outdoor warning devices of the same decibel (dB(C)) rating.

is well.Ingeneral, However,thesteam comments on at:

cupplies arehorns applyexpensive even more to steam than whistles air supplies. It is generally not practical to install staam vhistles aless an adequate stea= supply is already available.

D. Ratings and Specificatiens . The sound outputs of acoustic autdoor warning devices are given in ter=s of their maximum decibels dB(C)) esasured at 100 ft. (30 m) from the device. The siting guide-

.ines in this manual are based upon this figure.

}

evicesThe arefundamental in the rangesound frequencies from 300 to 1,000ofHz.alment all outdoor warning" (Some devices "varble p and down in pitch within this frequency range. See Subsection E.)

slow 300 Hz. reduced hu=an hearing sansitivity and higher background sise levels ccabine to restrict warning ranges. Above 1,000 Ea, Junds are more rapidly autanuated in the at=csphere, so the warning t inge is again restricted.

The sounds from audibla outdoor warning devices are generally focused into the horisontal plane surrounding the device. Sound

'adiated upward would be wasted, and sound radiated downward close o the device is unnecessary and may be hazardous. See Section in VI-B.)

.s indicated above, some sirens may radiate a "beam"(of sound ne direction horizontally, and have a mechanical =esns for rotating his bea= around a vertical auis.

E. Warning Sirnals - Different cities and tevns use their out-

loor warning systema in different ways. Most local government s , how-iver, follev the yederal Emergency Management Agency (TEMA) guidance i ad use a certain signal to warn people of an enemy attack, and a

, !ifferent signal to notify them of a peacetime disaster. The s e warn-ng signals are:

l h)

~ ~ ~ ~ ~

f; p3 55 :::33 w .c .m -

l I

a i

Attack Warning - This is a 3- to 3-=inute wavering (varbling '

iten) tone on sirens, er a series ef shore blasts on horns or <

r devices. The Attack Warning signal shall =ean that an actual ek against the country has been detected and that protective

, on should be taken i==ediately. The At_ tack 'Jarning signal shall speated as of ten as warnings are disse =inated over the National ing Systa= or as des =od necessary b brain the required response by the y local governincluding =ent authorities taking ectiveactionrelatedtothearriva!opulation, of fallout. The meaning of signal "grotective action should be taken i==ediately" is appro- L i

te for t..e initial attack varning and any subsequent attacks.

signal vill also be used for accidental =issile launch warnings.

Attention or Alert '.'arning -

This is a 3 to 5-minute steady

sl from sirens, horns, or other devices. This signal may be as authoriced by local govern =ent officials to alert the public sacetime e=ergencies. In addition to any other =eaning or require.

for actic" as deter =ined by local govern =ent officials, the nion or Alert signal shall =can to all persons in the United i,s,, "Turn on radio or TV. Listen for essential a=argency infor=a-

{ A third distinctive signal =ay be used for other purposes, such j local fire signal.

BASIC TACTS A30"T SOUND 0"T OF DCORS 1 )

) A. Attenuat_ien with Dist.ince - As sound =cvv; away fro an

{ or varning device tcvard potential listener 4, it can be greatly ed by the at=osphere. For exa=ple, everyone knows that the ens of a sound decreases as the listener gets further frem the

s. Also, beyond a few hundred feet from a steady sound source, oudness varies with ti=e, being unnoticeable at so=a tines and i pronounced at others. Such effects, which are characteristic  ;

j ,e propagation of sound out-of-doors, are caused by the f actors '

'ibed be.

v. '

\

! 1. Divergence - As sound radiates away frra a source, its l

sity decreases with distance because its energy is spread over Fro: a

!erandlargerarea."spherical divergence" or "point-source, inverse square thisthe loss," because decrasse is l

intensity decreases inversely with the square of the distance the source to the receiver (sound level decreasee 6 d5 for each

] ing of source receiver distance), i 1

2. Attenustion Caused By Ground Effects - The ground pro- '

i a number of effects on the propagation of sound over its surface.

ps the st=plest of these in the interfere =eter effect, which s whon sound is propagated over a hard, flat surface. For any .

1 4

l

c c3 *ss w 3s w .t .:n =,2 ,

. i I

given source and receiver height, there are two sound-wave paths between the source and the receiver: cna di rect , and the other - secewhat lenger - reflected off the ground surface, t.'nder so=a conditiens , the sound waves arriving at a listener along these two paths interfere with each other, and cancel out. The opposite effect can also occur: the two. sound waves can add, and a " ain" (negative attenuation) is observed. When the becomes even = ore co= ground is so.t and absorbs some sound, this effect plicated.

3. Barriers A barrier te any large solid object that breaks the lini of sight between the sound source and the listener.

In general, a barrier can introduce up to 20 d5 of attenuation. The sound availabla behind the barrier ce=es from diffraction around the barrier, or from sound energy scattered into the regien behind the barrier from other wave paths.

4 Ef fects _of Vertical Te .perature and Wind _ Gradients :

Atnespheric Reitsetion - The "speed of sound in air increases with ce=parature. Turther= ore, when the wind is blowing, the speed of sound is the vector sum of the sound speed in still air and the wind speed. The te=aerature and the wind in the atmosphere near the ground are frequently nonuniform. This atmospheric nonuni- ,

of sound wave paths. Near ths formity ground, produces refraction this refraction (bending)ffect can have an e on the attenuation of sound propagated through the atmosphere.

time decreases During the dafapse)in with height ( ,

fattthat so weather, temperature sound waves from a normally source near the ground are bent upward. In the absence of wind, an "acoustic shadow," into which no direct sound waves can penetrate, for= around the source. Large attenuation are observed at receiving points well into the shadov sone - just as ' f a solid barrier had been built around the source. On clear nights, a ta=perature increase with neight is common near the ground (inversion) and the "barrier" dis-appears.

Wind speed alac st always increases with height near the round. 3acause the speed of sound is the vector sum of its speed fn still air and the wind vector, a shadow sone can form upwind of a sound source, but is suppressed downwind.

The combined effects of wind and temperature are usually such as to create acoustic shadows upwind of a source, but not down-cind. Only under rare circu= stances will a temperstare lapse be suf ficient tooverpowerwindeffectsandcreateashadowco=glately surrounding a source. It is less rare, but still unco ==on, .or a surface inversion to be sufficiently strong to overco=s an upwind shadow entirely.

5. Eglign,- Large a= cunts of denne foliage (100 ft. (30 m)

$r core) can actonuat e sound somewhat , althouEh seal, amounts of

~olicts have no effect.

X c3 'Es w 39 w ,t =.4, =,3 3

6. Absorneton of__ Sound in the Atmosphere - Sound is absorbed in the at=osphere in a way that depends upon the humidity.

In general, this loss is most prenounced at high frequencies and is of lesser importance at the sound frequencias produced by outdoor earning devices .

7. surnarv - The combination of all the f actors that cause sound to be attenuated in the atmosphere is both complicated and unpredictable. If one were to observe the sound from ( warning device 1,000 ft. (300 m or farther away, he would find that it varieswithtimeasmuc{.as20to30d5,dependinguponthecondi-tions of the atmosphere and the ground. This manual provides (Section V C) a simple and conservative =ethod for estimating warn-ing ranges. It is important to realise, though, that this is an estimate which - like the weather -- cannot be guaranteed.

3. Hearing - The most important factors determining the ability of a warning sound to alert a potential listener are the barriers eo sound in the listener's ic=ediato vicinity, and the background or nasking noise at his location.

1. Local Barriers _ - A potential listener indoors or inside a =otor vehicle is much less likely to be alerted by a warn-ing sound of a given loudness than someone out of doors. .his is, of course, because of the attenuation of the sound as it comes through the val'.s of the structure surrounding him. In general, an outdoor war:,ing device cannot be counted on to alert people in vehicles

or buildings unless they are very close to the device.

It is interesting to note that the current activity toward

'.: proving the energy-conservation properties of buildings will have

he conccmitant effect of increasing their sound attenuating prop-l irties. Thus, it is even less likely in the future that people in-l teors vill be alerted by outdoor audible warning devices.

2. Eackground Noise and Detectability The =ost import ant

! actor that determines the detectability of a sound is the signal-to-aoise ratio measured ever a range of frequencies around the signal frequency. The "noise" portion of this ratio is the background noise

' at the Itstoner's location. Thus, for a given level of warning signal, the backd round noise is critical to determining warning signal effectiveness.

Recent studies have shown that the outdoor background noise

! in a community is strongly correlated with local population density.

This correlation presumably results from the fact tha outdoor noise

, levels are almost always caused by motor vehicle trafzie, which correlates well with population density. Thus, population density

is a better

stric of background noise than zoning or land-use J ;atterns like "residential," "businer s," and "heavy industrial "

Recent studies have also shown that the level of sound from a warning device =ust be about 9 d5 higher than the level detectable

,  :: 03 is m ac ,t :. a  :;

under laboratory conditions in order to attract the attention of otherwise preoccupied observers.

3. Deleterious Effects of Warning Sounds When audible warning devices are used "in earnest" to alert a population of i= pend-ing disaster, it seems surprising that anyene veuld be concerned about any deleterious effects of the sounds themselves. Indeed, =any local noise ordinances specifically exempt sounds frera noise level rastrictions. Nevertheless, in somewarninE.

commun ties sirens are operated so fre cowns)quently that co=(such plaints asabout to provide their tornado warnings noise level in midwtatern have beer. reported.

Furthar= ore, the warning devices must be tested from cita to ti=a, and the resulting high noise levels could be viewed as misturbing cnd/or damaging under these circu= stances.

4. Hearina Damare - Tor test purposes, audible waming devices should be so located and operated that no ?erron is likely to be subject to a sound level great enough to cause hearing damage. A suitable limit for this purpose, based upen recom=endations of the Committee on Haaring, Bioscoustics and 5tomachanics (CMABA) of the National Academy of Sciences, is 123 d3(C).

Loud sounds, even if not potentially damaging, can be viewed cs a disturbance by some residents of a comunity. Operators of audible outdoor waming systems should realize this fact, and shouldi e Miuisize the frequency and duration of tests of outdoor warning devices. Alternatively, "grev1 tests" caq be con-ducted (see Section VII) when the source is a siren.

e Refrain from conducting tests at night when people are relaxing and sleeping, j e Avoid locating warning devices too close to noise-

! sensitive activitics.

5. Seemarl - The dessetability et an auditory warning signal is a function of the level of the signal at the potential

< liutener's ears relative to the background noise at his location.

Because of local barriers, it is probable that a much smaller proportion of the potential listeners indoors or in vehicles can ba alerted by an avdible warning system, relative to the pro-portion that couid be alerted out o;. doors.

No person should be exposed to the sound of an outdoor '

warning device if it exceeds 123 d5(C).

C. Estimating Range of Covereze - All of the factors in the previous two subsections - on prepagation losses and on signal dotection - have been combined to e5tain the warning effectiveness ranges illustrated in Figure 1. The range, or radius, of c)verage of

__ -_. - . __ _5 _ _ __ _. __ _ _ _ __

~

l

c c3 Es m.:: . t->.m g any audible cutdoor warning device can be determined fres Figure 1 on the basis of the rated output of the warning device at 100 ft.

Figure 1 indicates, device rated 120 d3(C)willhavearangeofagcutfor exa= le, that 3,700 ft. a (1..

warning km) in suburban and rural areas, when counted above the rooftops. In an urban area, when the device is counted below the rooftops, its effective range will be about 1,200 ft. (0.35 km).

The upper curve in Figura 1, applicable to suburban and rural areas, is very close to 10 d3 per doubling cf distance for a 70 d3 warning signa 6 level. The lower curve of Tigure 1, that applicable to urban high-rise areas, takes into consideration the greater attenuation caused by shisiding and the higher background noise levels existing in downtown areas.

Two important features of Tigure 1 should be emphasized. The first is the "NOTE" in the caption, which makas clear the uncertain-ties associated with the range prediction process. The second oint is e= bodied in the parenthetical re= arks "over roof-important tops" and p'bslev roof tops" in the labels of the curves. It is strongly reco== ended that warning devices be mounted above the pre-vailing roof top height in areas where buildings are less than 3 to 4 stories high. In urtsn high-rise areas, of course, the opposite may be advisable.

VI. P'.ANNING AN OUTDOOR VARNING SYSTEP.

A. Determining Warning coveraze - Tha basic tools for planning an outdoor warning system are a good topographic map of the community, a drafting compass, gnowled warning devices te be used,ge andofFigurethe sound output 1 fro = ratingc of the this manual.

Planning itself can be broken down into the following steps:

1. The civil preparedness official should locate, on tha j

= apt <

l I e Downtown areas that contain tall buildings ,

e Hills or any other barriers that would obstruct ths flow of sound .

e Residential (suburban) or rural areas with low buildisgs over which scund can mcvs freely .

2. The official should locate the public or business build- '

ings that would be good sites for a warning device. (The ce== unity civil preparedness officer will, of course, have to double-check tho usefulness of the site and obtain per=tesion from the owner to install the device.)

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3. The official should circle, on the map, the area in which each device will be effective, using ranges read from Figure 1.

It is a good idea to start the layout with the obvious warning device locations, such as:

e Noisy places (freeway interchanges, rail yards, e Locations with good line-of sight coverage (hill-tops, centers cf radial street patterns) .

e Locations where permission to install the devices can be readily obtained (public buildings, parks) .

Noise-sensitive locations (hospitals, schools, residential buildings) should be avoided.

Many layouts are possible for most communitiis, and several trials may be necessary to obtain a layout with the minimum number of dcvices.

The product of this pinnning effort should look like Figure 2, a map covered with interlocking circles, each centered on a single warning device. (Note that the circles do not overlap to

' ajor degree. This layout attempts to make maximum use of warn-1 any ing = devices rated)120 (dB(C)), so that the minimum number of different types of devices will be required.

The finiched planning map can help answer a major cuestient What will the entire outdoor warning system cost? The number of circles indicates the number of devices needed and is a clue to the costs of installation and maintenance, as well as to the costs of control circuits for the system.

I If the total cost, as estimated during planning, is too high, civil preparedness officiels may want to redesign the system, perhaps decreasing the total number of devices by increasing the sound level rating of each device to be used.

J

, 5. Siting to Avoid Ratardous Exposure - Detailed siting of

, each device should take into consideration the Installations factors desirable to should maimize coverage, described in Section VI-A.

1 clso be sited to avoid ex7osing anyone to sound levels exceeding 123 dB(C). In general, this second requirement can be achieved by mcunting the device high enough above ground level so that the sound is directed mostly over the heads of people standing on the ground

near the device. The minimum height needed to =est this requirement, j as calculated for ene type of siren with a well-designed horn, is j illustrated in Figure 3. This figure indicates, for example, that e device rated at 120 d5(C) should be mounted at least 32 ft. (10 m)

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c c3 ' Es ::: cc . , c >.;e4 g LEGIND SOURCE A 125 d3(C) zounted in suburban area at fire station:

Range 5900 ft. (1.8 km)

A1 125 d5(C) mountad in suburban area at fire station:

Range 5900 ft. (1.8 km) 3 120 d5(C) =ounced at major road intersection Range 3700 ft. (1.1 km)

C 120 d3(C) mounted in industrial area:

Range 3700 ft. (1.1 km)

D 120 dB(C) mounted on hilltop:

Range 3700 ft. (1.1 km)

, t 120 dB(C) =ounted at turnpike interchange:

Range 3700 ft. (1.1 km)

E1 120 d3(C) nounted at turnpike interchange s i

Range 3700 ft. (1 '. km) l F 120 d3(C) mounted in park: J t

Range 3700 ft. (1.1 km) i

{

G 120 d3(c) =cunted in high-rise area at city hall: ,

! Range 1200 ft. (0.36 k=)

H 120 d3(C) mounted in high-rise area at highway inter-

! change Range 1200 ft. ( 0 . . A- )

\

l '.20 dB(C) mounted in high-rise area on highway bridge: {

i Range 1200 ft. (C.36 km)  !

l

. (Map With Circles Centered on Single Warning Devices) ,

. -- - _ _ 1

t c3 as ;vec .c '_m  : .4 chove the ground. Of course, a higher =ountin ma be destrable to placethesourceabovetheprevailingrooftopfeigkt.

Note that Tigure 3 has been established for just one type of source. It may not be applicable to other products. The public official should ask the vendorstanding about the hei to 1imit the exposure of people on proper mountin c..a ground to 23dght (C) or less.

In those cases where it is i=possible to =ount the device high enou h to achieve a safe sound level on the ground, lar shou.d be pro =inently displayed on the device, reading:ge signs CIVIL PREPARZDNESS WARNING (horn, siren, etc,)

CAUTIONI THIS (siren, horn, eec.> OPERATES AUTOMATICALLY, ITS SOUND CAN BE DANGER 0'.'S TO YOUR HEARING. WHEN IT STARTS TO OPERATE, COVER YOUR EARS AND MOVE AT LE4JT 200 TEET AWAY.

I In sece urban areas, it =ay be necessary to mount warning 4 devices in such a way that the main sound beam is directed at adj a-centbuildinfs. When this occurs, the devices should be mounted no i

closer than .ndicated in Figure 4 A much greater separation than indicated by Tigure 4 would be desirab'.e for the comfort of build-ing occupants .

V%%. SYSTEM TESTING AND USE Once an outdoor warning system is installed, civil prepared-ness officials must ensure that the syste. does indeed alert resi-I dents of the community. A system is successful only if

o Residents of the community know how the signal sounds and why it is being sounded o Residents can differentiate between system testing and a true alert e Zach device is operating as it should 1

I A. Knovledae of Warninas - A=aricans are almost two generations removed from the days of World k'ar II, when the voice of the af.r raid l siren, the infor ation it carried, and the pro er reaction to it vore f amiliar to everyene in the comunity. . ough the potential of

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. .c c3 Es .2:c2 w .- =_ m z enemy attack remains, the usefulness of outdoor Warning syste=s =ay have dwindled. If so, civil breparedness cfficials can turn the situation around, pri=arily t.. rough a controlled program of testing cnd a well-plannoi public infor*,ation ca=paign.

Testins/Aler_t_ - Detailed infor=ation on the testing of out-3, door warning systems is given in CPG l-14 which includes reco==enda-tions that local officials:

e Test the outdoor warning syste= approatmately once a =onth .

o Fublicize the testing day and time each conch .

e Test by sounding the "Attention" er "Alert" signal (the steady sound) for no more than 1 minuts.

o Follow with 1 minute of silence.

e Finish b orseriesofe{..ortblasts) sounding the "Attack Warning"1 minute .(rising /f alling signal for no core chan e E=phasize, in all public announce=ents, that testing signals are sounded for less than 1 miaute only, while in an actual emergency, all warnings would be sounded for 3 to 5 minutes and would probably be repeated .

When sirens are used, and must be tested more frequently than ence a month, a "growl test" is acceptable. In a growl test, tha siren is sounded .or so short a ti=e that it never prodaces signifi-cant sound output, ys long enough so that officials can determine that it is worting.

C. Public Information CaE2.aign - The civil preparedness official who =ust create a public information ca=paign has two advantages as he starts. First, the information he must communicate is neither lengthy nor hard to understand and, second, he is talking to people about their ewn safety. He should involve all community media, such as newspapers and radio / television stations, in his campaigni he ,

I should not overlook such useful forms of communication as posters in I public buildings, newsletters sent out by cemmunity organizations, i flyers enclosed in utility bills, and opportunities to address school asse=blies.

The =essage =ust be straightforward, and the best ca=paign will repeat the same announce=ent, in the sans words, again and again. Suggesticns for conducting a public infor=ation campaign are contained in .deas for Conducting Awareness Campaigns." MP-83

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