Proposed Solutions to Problems

with Four Oaks Pavilion

Prepared for: Hartville City Council and Kramer
Associates
 TABLE OF CONTENTS

TABLE OF CONTENTS 2
Executive Summary 3
Introduction 4
Background 4
ISSUE ANALYSIS AND POSSIBLE SOLUTIONS 5
Noise 5
Causes 5
Solutions 5
Parking 7
Causes 7
Solutions 8
Traffic 9
Causes 9
Solutions 9
Public Perception 10
Causes 10
Solutions 10
CONCLUSION AND FINAL RECOMMENDATIONS 11
WORKS CITED 12

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 Executive Summary

The construction of an entertainment amphitheater called Four Oaks Pavilion has

caused a number of problems to plague Hartville, North Carolina. As a joint venture
between the City Council, which funded the project, and Kramer Associates, which
manages the project, Four Oaks Pavilion was expected to be a financial success. Though
the pavilion is successful in raising revenue, it has created several serious problems
that could limit its future success. The purpose of this report is to identify, analyze, and
find solutions for these problems. The most pressing problems creating by Four Oaks
Pavilion are:

● A nearby neighborhood is kept awake because the music is too loud

● Traffic is overwhelming
● Lawns have been damaged, possibly because concert-goers are parking in residents'
driveways

● Crowds are behaving raucously

● The public feels their complaints are being ignored
● Previous solutions have been ineffective
Through extensive research and an acoustical study completed by SMZ Engineering,
this report determines which solutions will be most effective in the long-run as well as
other solutions that could help mitigate existing problems within a smaller budget.
Recommendations for solving the problems with Four Oaks Pavilion include:

● Improving the berms effectiveness through new vegetation or a sound wall

● Hiring off-duty police to direct traffic and improve traffic flow
● Building a parking garage

● Creating a forum for residents to send feedback and receive responses

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 Introduction

Background
The Four Oaks Pavilion was built as part of Hartville's revitalization plan, bringing the
city more revenue, more jobs, and adding entertainment value. It was financed by the
City Council and built near a low-income neighborhood, both being close to an
interstate highway and the city boundary. Though an environmental impact study was
conducted prior to building the pavilion, it failed to identify any issues with the building
plan and its recommendations only included building a berm to reduce noise pollution.
Four Oaks Pavilion is managed by Dale Crompton, an employee of Kramer Associates.
Previously, Kramer Associates tried to reduce noise complaints by installing baffles -
panels that absorb some unwanted noise or frequencies while improving the sound
quality - on the sound system and directing speakers downward. These solutions were
not well received by those affected by the noise when they failed to substantially reduce
sound levels at the nearby neighborhood.
With the City Council's approval, Kramer Associates hired SMZ Engineering to conduct
an acoustical study of Four Oaks Pavilion and the neighborhood nearby. The results
from the study recommended enforcing the berm to improve its viability as a sound
barrier, insulating or otherwise improving homes near the pavilion to reduce noise,
setting a noise level of 105 decibels, and installing equipment to keep sound levels at or
below that noise level inside the concert area.

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 ISSUE ANALYSIS AND POSSIBLE SOLUTIONS

Noise
Causes
The SMZ Engineering acoustical study provided ample analysis of the noise complaints.
Although the berm, a raised strip of land, and pine trees were constructed to minimize
noise pollution, the study revealed the type of pine trees chosen were not adequate for
that purpose. Some of the noise on concert nights was not sourced to the concert itself
but to dogs barking and crowds cheering; these are sounds that cannot be controlled in
the same way that the music can be controlled. The climate of Hartville, North Carolina
produces humid air which does not absorb sound as efficiently as dry air does.
As shown in Figure 1, the decibel level for
a quiet urban area is around 50 while the
rock band is at 110. It may be impossible
to reduce the sound from Four Oaks to
below 50 decibels. Thus, the goal of these
solutions is not to eliminate the concert
noise entirely but to reduce it to a level
that is manageable and not intrusive to
nearby homeowners.
Solutions
The acoustic study completed by SMZ Figure 1: Decibel (dBA) Level
Engineering proposed implementing of Common Noise Sources,
detailing activities and the
sound level of no more than 105 decibels at the
typical amount of decibels they
mixing equipment through the purchase of audio produce (“Decibel Level of...”).
equipment. 105 decibels is a standard sound
level used by other entertainment venues. To enforce compliance and to encourage
performers to carefully monitor the decibels of a performance, a fine or bond for
exceeding that limit should be implemented in conjunction with other measures.
Otherwise, performers may ignore the limit and compromise the other methods of
minimizing the noise pollution.

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In a report about managing noise pollution for another outdoor amphitheater, the
researchers came to the conclusion that using bonds as leverage to follow maximum
decibel guidelines was effective as long as they were lenient with small decibel
exceedances (French and Marchuk 9). Table 1 shows the data from three different
concerts for how long the concert was, how many decibel exceedances it had and for
how long, and how many complaints about noise were received. The size of the
performance bond used in another amphitheater was dependent on the size of the
event but never exceeded 50 thousand dollars (French and Marchuk 8). Monitoring the
decibel level and having bond release dependent on those levels is shown to be effective
at minimizing community complaint.

Table 1: Community Response from River Stage (French and Marchuk 4)

There are many options to improve the effectiveness of the berm already existing
around Four Oaks Pavilion. The acoustic study from SMZ engineering cited the type of
pine trees used on the berm as inadequate for reducing noise. One option is to plant
another row of trees that are suited to reducing noise pollution without removing the
existing pines. Another option is constructing a sound wall around the pines that are
already there.
The best tree to augment the pines is the Leyland Cypress. This tree grows quickly, is
not an invasive species, and is well documented as a sound barrier (Griffin). It can also
be intermixed with other arborvitae if desired to reduce the risk of pests and disease.
This solution would likely cost several hundred thousand dollars. However, the Federal
Highway Administration (FHA) has not approved any vegetation, including trees, as a
sound barrier which may impact which funds could be used to accomplish this (“Road
noise and...”).

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The FHA has approved earthen berms and concrete walls. The effectiveness of a sound
wall depends on a variety of factors including: height, distance from area producing
unwanted noise, and materials. Building the sound wall close to the nearby
neighborhood would be most effective but residents may protest a feature that is
considered aesthetically unappealing. Putting the sound wall on top of the berm is the
next best placement. According to the Washington State Department of Transportation,
sound walls can easily cost upwards of a million dollars.

Figure 2 (left): Leyland Cypress Figure 3 (right): Precast concrete sound wall
(“#3 Cupressocyparis x ...”) (Goguen)

Parking
Causes
While no study has been conducted on the lack of sufficient parking for Four Oaks
Pavilion, complaints lodged by citizens have documented the problem. The parking
issue is closely connected with reported property damage and rowdy crowd behavior.
The lack of parking is most likely causing concert goers to venture into residential areas
to find parking which exposes residents to their behavior and causes the damage; if the
parking issue is solved, the other two issues may be resolved as well.
Concert attendees have been reported to park on the sides of streets and in nearby
residents' driveways. Four Oaks Pavilion seats 20 thousand people; any solution to this
problem will require a substantial increase in the volume of parking space or else risk
being insufficient.

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Solutions
The obvious solution to a shortage of parking space is to build a parking garage. An
over-ground parking garage is substantially cheaper than an underground one even
though it would take up more space. It would also help contribute to noise reduction by
acting as a sound barrier. A regular parking garage can cost up to 30 thousand dollars a
space; if parking space was increased by 1 percent, or 200 spaces, it would cost over 6
million dollars (“To build or...”). This cost could be mitigated by fees to gain access to
the structure and allowing it to be used - for a fee - by other businesses, commuters,
etcetera when no upcoming events are scheduled.
Another solution that is more unconventional but in the same school of thought is
building an automated parking garage instead. Automated parking garages are parking
garages in which a person drives their car into a space, parks it, and it is moved and
stored elsewhere in the parking garage; the driver is given a special code which will tell
the computer system which car to return to them when they are ready to leave.
Automated parking garages can be cheaper at only 20 thousand dollars a parking space
and they take up less ground for the same amount of parking spaces (“To build or...”).
The costs could, like a regular parking garage, be offset by charging for access and it
would still act as a sound barrier.
Other solutions include: paving a parking lot, roping off parking areas on grass or gravel
areas, and implementing a shared parking agreement. Paving a parking lot for the same
amount of 200 spaces is considerably cheaper at upwards of 75 thousand (“Asphalt
Paving Costs”). However, parking lots require more upkeep; they must be repaved and
repainted and they can crack or develop potholes. It would also not be able to act as a
sound barrier. The cost could still be offset by charging for access.
If there are nearby unused lots owned by other companies or individuals, an agreement
could be reached to allow concert attendees to park on the lots if they are flat with grass
or gravel surfaces. A shared parking agreement, in which a business or individual
agrees to allow attendees to park on their property, could be created. This would allow
nearby businesses to charge attendees to park on their property.
Depending on how far the parking lot, unused lot, or business is from Four Oaks
Pavilion, transportation to and from the parking lot to the pavilion may be necessary. A
bus system would solve this transportation problem, reducing danger to pedestrians

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who would otherwise have to walk to the pavilion, but adding traffic to the area which
is already congested. The Orange County Convention Center in Orlando, Florida uses a
variety of these methods together to allow for sufficient parking. Some lots are paved
and require daily permits and a fee to access while others are in grass fields nearby and
have buses that can transport attendees to the entrance.

Traffic
Causes
The influx of twenty thousand people to attend an event at Four Oaks Pavilion causes
the usually suburban to rural area to overflow with traffic. This traffic contributes to
noise pollution via horn honking and also could be caused, in part, by a lack of parking.
It is difficult to solve issues surrounding traffic without considering projects that
involve changing the structure or width of streets but such projects are expensive, time-
consuming, and often hard to implement. The solution detailed here will consider
alternate ways of managing traffic.
Solutions
A solution that many large events use is hiring off-duty police officers to help direct
traffic. The benefits of this are varied: it discourages speeding and reckless driving in an
area where it would be particularly dangerous, it allows any accidents to be dealt with
quickly, it increases the security of the event, and it allows for temporarily changing
traffic patterns.
Another solution to decrease traffic could be to incentivize concert-goers to carpool.
There could be preferred parking spots closest to Four Oaks Pavilion for those that
arrive with a full car. Fees for parking in shared parking agreement lots could be waived
for those who carpool. The idea is to decrease the overall number of arriving cars in a
natural way which should help reduce arriving traffic to a degree while hiring police
officers helps reduce the chaos on the roads.

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 Public Perception
Causes
After noise from concerts reportedly rattled residents' windows, those affected started
calling their councilwoman and Four Oaks Pavilion with complaints. Though the City
Council tried to implement solutions, they failed, and the public outcry was immense.
When the City Council hesitated to approve an acoustical study or implement any other
solutions until a report was conducted, residents felt ignored by the council that was
supposed to be representing them.
Most of the negative public perception comes from solutions taking too long to
implement and then failing. The solutions here will attempt to rebuild the trust that has
been lost between Four Oaks Pavilion, the City Council, and the residents who have
been affected by one or more of the issues stated above.
Solutions
The simplest solution is to keep impacted residents informed of any developments that
occur with Four Oaks Pavilion. This can be done through a newsletter, an email they can
subscribe to, or something as simple as a Facebook page. Any changes that will help
improve their experience with the pavilion should be communicated to the residents
ahead of time with specifics like when the project will start and when it should be
completed. Allowing residents hold the City Council accountable will start to rebuild the
lost trust.
Creating an online forum, like a website, where residents can communicate with each
other, lodge complaints, and have responses from people involved in the project would
be another good solution. It must be taken into account that some residents of the
neighborhood may not have access to or the knowledge to use such a site. Curating the
website, updating it, and running it may require a dedicated position to be created.
A solution to reduce negative public perception and the volume of complaints that
another amphitheater used was notifying nearby residents with the dates and times of
concerts ahead of the event. They found that residents were more likely to tolerate
loud, infrequent events if they knew the event was occurring ahead of time (French and
Marchuk 1). This could be done effectively through email, mail, or social media.
These solutions are relatively low cost but their effectiveness depends on
implementation. Someone experienced with public relations should handle these

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solutions. If they are not done well, their impact will be low if not negligible. If they are
done well, it could increase amiability or at least apathy toward Four Oaks Pavilion and
the City Council.

CONCLUSION AND FINAL RECOMMENDATIONS

When reporting the most effective solutions, it is important to consider how the
solutions will satisfy all the stakeholders involved. Keeping Four Oaks Pavilion
profitable is important but so is retaining public support for it. People's livelihoods
depend on making carefully considered, well-planned decisions with regards to the
solutions presented here. Expense is not necessarily congruent with effectiveness.
Long-term solutions are best but short-term solutions can keep the situation from
worsening. Whatever solutions are chosen should be planned thoroughly but
implemented quickly to improve the situation as soon as possible. With these thoughts
in mind, here are my final recommendations:

● Noise - The berm should be reinforced with Leyland Cypress trees and the pine
trees should be kept. The equipment recommendations provided by SMZ
Engineering should be followed and implemented to monitor decibel levels but this
should be done in conjunction with setting bonds for performers so they are
invested in following the decibel limits.

● Parking - At least one automated parking garage should be built and a shared
parking agreement should be negotiated with nearby businesses and lot owners;
following these, a bus transport system should be planned and executed.

● Traffic - Both solutions presented should be implemented and evaluated. If hiring

police officers and encouraging carpooling is deemed effective enough to warrant
continuing, it should be renewed.

● Public Perception - Residents should be notified about events at Four Oaks Pavilion
ahead of time and they should be kept informed of new developments that happen
at the pavilion through email and a Facebook page.

With these recommendations, the City Council and management of Four Oaks Pavilion
should be able to solve their most pressing issues effectively.

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 WORKS CITED
“#3 Cupressocyparis x leylandii/Leyland Cypress.” Bates Nursery and Garden Center,
www.batesnursery.com/3-cupressocyparis-x-leylandii-leyland-cypress.html. Accessed
30 Sep. 2019.
“Asphalt Paving Costs.” Ohio Paving, ohiopaving.com/asphalt-paving-costs/. Accessed
23 Sep. 2019.
“Decibel Level of Common Noise Sources.” Minnesota Noise Pollution Control,
www.pca.state.mn.us/air/noise-pollution. Accessed 23 Sep. 2019.
French, Henry and Marchuk, Alex. “Regulatory Strategies for Managing Noise from Outdoor
Music Concerts.” Acoustics 2016 edition,
www.acoustics.asn.au/conference_proceedings/AASNZ2016/papers/p87.pdf. Accessed
23 Sep. 2019.
Goguen, Claude. “A Sound Decision.” National Precast Concrete Association, 28 July 2016,
precast.org/2014/07/sound-decision/. Accessed 30 Sep. 2019.
Griffin, Colby. “The Leyland Cypress.” North Carolina Cooperative Extension, 13 July, 2017,
edgecombe.ces.ncsu.edu/2017/07/the-leyland-cypress/. Accessed 23 Sep. 2019.
“Road noise and noise walls.” Washington State Department of Transportation,
www.wsdot.wa.gov/environment/protecting/noise-walls. Accessed 23 Sep. 2019.
“To Build Or Not To Build Parking: Automated Parking Lifts Have Changed the Rules.”
Citylift, 13 Dec. 2016, cityliftparking.com/build-not-build-parking-automated-parking-
lifts-changed-rules. Accessed 23 Sep. 2019.

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