Ambient Noise Strategy

320 Pages·2004·3.72 MB·English

Sounder City
The Mayor’s Ambient Noise Strategy
March 2004
Sounder City
The Mayor’s Ambient Noise Strategy
March 2004
copyright
Greater London Authority
March 2004
Published by
Greater London Authority
City Hall
The Queen’s Walk
London SE1 2AA
Enquiries 020 7983 4100
Minicom 020 7983 4458
www.london.gov.uk
ISBN 1 85261 594 X
Cover photograph credit
Montage of images © Transport for London Visual Image Service
Copies of a highlights document and this strategy are available from
www.london.gov.uk or by calling 020 7983 4100 (a limited number of
printed copies of the full document are available at a cost of £25).
Acknowledgements
The Mayor would like to give special thanks to the Noise Strategy Team at
the GLA, Max Dixon and Alan Bloomfield, and to the steering group,
Victor Anderson, David Goode, David Hutchinson and John Duffy. The
Mayor would also like to thank everyone who contributed to preparation
of this strategy, not least all Londoners who responded to public
consultation. Particular acknowledgement is given to the work of John
Stewart and Val Weedon on behalf of people who suffer most from noise,
and to the many specialists, including those listed in the Appendix, who
work to advance understanding of the sound world.
© Crown copyright material is
This document is printed on 75 per cent recycled paper,
reproduced with the permission
of the Controller of HMSO and 25 per cent from sustainable forest management
the Queen's Printer for Scotland
The Mayor’s Ambient Noise Strategy Mayor of London
contents
foreword i
executive summary vii
1 introduction 1
2 challenges, effects and information 7
The context 7
Adverse impacts of noise 8
Changes in noise 11
Information on noise in London 12
3 vision and linkages 31
A vision for the Mayor’s Ambient Noise Strategy 31
Objectives of the Mayor’s Ambient Noise Strategy 31
Guidelines, limit values and targets 32
Linkages and cross-cutting themes 34
Linkages with the Mayor’s other strategies 39
4 policies and proposals 53
Principal mechanisms for delivering noise reduction 54
Procurement 55
An indicative noise management hierarchy 56
4A road traffic noise 57
Managing London’s streets 58
Quieter vehicles 60
Traffic reduction, street space allocation and routeing 64
Quieter, smoother and safer driving 66
Better streetworks and street maintenance 68
Noise-reducing road surfaces 70
Tree planting, noise barriers, landform and highway structures 71
Spatial planning and urban design 73
Building insulation 74
Neighbourhoods, town centres, public spaces, walking and cycling 75
Central London Congestion Charging 78
Road freight 79
Bus services 83
Taxis and private hire vehicles 88
Fleets and facilities of the GLA and functional bodies
and other emergency services 89
Motorcycles, mopeds and scooters 90
Assessing and prioritising action 91
Mayor of London The Mayor’s Ambient Noise Strategy
4B railway noise 99
Issues in controlling railway noise 100
Track type and quality - including wheel-rail rolling contact 100
Quieter rolling stock and operation 102
Railway structures and noise barriers 104
Spatial planning and urban design 105
Building insulation 107
London Underground 108
National Rail 110
Construction and maintenance works 111
Noise mapping of railways in London 112
Passenger stations and interchanges 113
Train noise for passengers 113
Rail freight 114
New schemes and assessment 115
4C aircraft noise 119
Issues in controlling aircraft and airport-related noise 121
Quieter aircraft and aircraft numbers 121
Noise abatement operational procedures 125
Operating restrictions, including restrictions on night flights 128
Ground noise and surface access 131
Spatial planning and building insulation 132
Public information and communication 137
Air freight 139
Other airports and airfields 139
Helicopters 140
Future spatial distribution of airport facilities 144
Applying the ‘polluter pays’ principle 145
4D noise on rivers and canals 151
Powering of craft 152
Tourist and party boats, piers and moorings 153
Wharves, boatyards and waterside planning 154
Water and waterside soundscape quality 155
4E industrial noise 159
Integrated Pollution Prevention and Control and Waste Management 160
Issues in controlling industrial noise 162
Economic development potential 166
Aggregates 166
Transport routeing and access 167
The Mayor’s Ambient Noise Strategy Mayor of London
4F spatial planning, urban design and open spaces 169
Urban renaissance 169
Housing, schools and health facilities 171
Mixed uses, town centres and the late night economy 177
Sound-conscious urban design 181
Open spaces and the wider public realm 185
5 integrated noise management 193
Hearing-friendly design and management 194
Healthy hearing and leisure sound - pubs, clubs, and other pastimes 194
Neighbour noise 195
Housing and neighbourhood management, crime and disorder 195
Education and public awareness 196
Low frequency noise 196
Construction noise from building operations 196
Setting priorities 197
Noise mapping 199
Effects and people’s priorities 201
Organisation 201
Costs 203
Training and staffing 206
A Mayor’s Sound Award? 206
Sounds of the city 207
appendices 210
A1 implementation framework 210
A2 what is noise? 218
A3 typical noise levels and indicative noise reductions 226
A4 who does what 228
A5 guidelines and standards 230
A6 requirements of the Greater London Authority Act 1999
related to noise, and relevant international obligations
notified to the Mayor 239
A7 external noise insulation of housing 243
A8 abbreviations and glossary 245
A9 bibliography 265
A10 contributors’ and photography credits 278
A11 index 280

The Mayor’s Ambient Noise Strategy Mayor of London i
foreword
Noise may not be top of everyone’s priorities, but it is a big issue for many.
That is clear from those who welcomed this first city-wide strategy when
the draft was published for public consultation in March 2003. It focuses on
getting more action going on ‘ambient noise’, mainly noise from transport
and industry, but also looking to better housing and good building design.
My legal remit is ambient noise - mainly from transport. This strategy reflects
that duty. However, I am in no doubt that neighbours from hell can leave
people at their wits’ end. Noise makers need to be aware that music systems
or other equipment can be confiscated if they cause real nuisance to others.
In much of Europe, local police offer the first line of defence against
excessively noisy neighbours. New Yorkers call NYPD. In London, the
boroughs are responsible. Even so, more people call the police about noise
than call their council Environmental Health Departments. In the long term, I
would like to see properly resourced and responsive local policing being able
to sort out most breakdowns in neighbourliness, with the noise specialists as
back up. I have already expanded police numbers. More neighbourhood
wardens and community support officers are coming through. Clearly there
are going to be other pressing priorities for some time to come, but I will
work for a future in which those responsible for these services can consider
new options with potential benefits for all concerned.
Meanwhile, I invite London boroughs to reconsider the wide variations
which exist in local noise services across the city. Some have good out of
hours services, dealing with noisy parties and other nuisances. All boroughs
need to achieve the standards of the best in this vital service to Londoners.
Opportunities for shared services across borough boundaries need to be
considered. I am keen to work with boroughs to get better funding for
London’s noise services, ring-fenced if necessary.
I also want to see better control of noise from roadworks and building works.
Transport for London will play its part. This may not be defined as ‘ambient
noise’, but all those responsible must pull together, so we can secure the
benefits from growth, while keeping construction noise under control.
London is a noisy city. Its buzz is tangible. But everyone needs to rest and
recover at some time. Noise can interfere with speech, learning and
concentration, as well as leisure. Good modern city management needs to
minimise noise for the wellbeing of all those who live, visit or work here.
London is leading the way for the UK with this first city-wide strategy for
ambient noise. The Government has said it needs five years, noise mapping
costing £13 million, and many other studies to prepare a national strategy.
ii Mayor of London The Mayor’s Ambient Noise Strategy
The Greater London Authority Act required me to produce a strategy for probably the country’s
noisiest city, but with no new money and no new powers specifically to reduce noise. I am very aware
of the costs of properly addressing noise - but also of the needs, and the benefits for Londoners’
wellbeing. In our current system, only the Government can secure the changes required. It must
speed up development of an effective national noise policy, incuding work on costing.
I am keen to do whatever I can, but no-one can pretend that it will be quick and easy to reduce noise
in Europe’s biggest city. London is ahead of national strategy, so there are many issues on which I
must urge Government to act. Many practical actions will be pursued at city level, but we will still
need further reductions at source, including quieter road vehicles, railways and aircraft. International
agreement and action is vital, particularly for a world city. London can demonstrate practical action.
Progress on noise demands partnership, with the Government, the London boroughs, and others.
I want to play my part, especially through Transport for London, and with the London
Development Agency. A major early priority is making up the backlog of street re-surfacing. But
we must have sufficient transport funding.
We will build noise management into as much of our transport and other work as we can. ‘Streets for
People’ policies can help reduce noise in local areas. Local highway authorities need to consider
alternatives to the ‘road hump’. Fuel cell buses are being trialled. We also plan to trial hybrid-electric
buses. If we can find suitable locations and funds, I would like to get some noise barriers in London
which also generate solar electricity, so that we can increase renewable energy at the same time as
reducing noise.
I was glad to support action in the European Court of Human Rights on night aircraft noise, though,
like many Londoners, I was very disappointed that the Court went back on its earlier decision which
had found for the residents. Trafalgar Square remodelling has, however, been a great success, with
people remarking how they can hear the fountains from the gallery steps for the first time. Open
spaces and watersides need special attention. Good planning and design of buildings can stop road
and railway noise spreading. With good design, new development can create new quiet spaces.
I extend my thanks to all who gave views and advice, especially Victor Anderson, my Environment
Adviser. I am glad to have received constructive input from the London Assembly and from many
others during public consultation. Noise policy is becoming more positive. It is an exciting and
creative time for those concerned with the sounds of the city.
Parliament gave London a pioneering role. London carries an extra noise burden as gateway to the
UK. Action here can help in national policy development. Government must recognise this by
supporting exemplary projects, and setting up funds for on going noise reduction.
Ken Livingstone
Mayor of London
The Mayor’s Ambient Noise Strategy Mayor of London iii
preface the Mayor’s Environmental Strategies
This Strategy is one of a series dealing with environmental issues in
London. The Mayor is required to produce four environmental strategies
addressing Air Quality, Ambient Noise, Biodiversity and Municipal Waste
Management. He has also decided to produce an Energy Strategy for
London. The main elements of each environmental strategy are reflected
in the overall London Plan and where appropriate in the Transport and
Economic Development Strategies. Together these strategies provide the
basis for improving London’s environment. They also provide an
integrated framework for sustainable development.
Whilst improvement of London’s immediate environment, by reducing
pollution and improving the quality of life for Londoners, is the main
purpose of the environmental strategies, this is not the sole objective.
The strategies also need to take account of London’s wider impacts on
the global environment and identify action to reduce damaging or
unsustainable processes. To do this we need to understand the way that
London functions in terms of its daily processes and be aware of its
wider ecological footprint, recognising that this extends to virtually all
parts of the globe.
A detailed analysis of London’s ecological footprint, published in 2002,
quantified the energy and materials used or wasted by current practices.
This was summarised in the Mayor’s State of the Environment Report for
London published in May 2003. It demonstrates unsustainable levels of
resource use resulting from a fundamental difference between the way a
city works and the processes of the natural world. Whilst natural
ecosystems have a series of inbuilt circular processes, preventing most
wastage, the metabolism of a modern city is almost entirely a one-way
process. This is particularly true of affluent cities in developed countries,
where vast quantities of material are imported daily for human use and
waste products are discharged as unwanted residues. London is no
exception. Examining individual elements of London’s functional
metabolism, such as waste or energy will help to identify action we can
take to improve our environmental performance and reduce damaging
impacts elsewhere. This is crucial if we are to be successful in combating
climate change and reducing London’s global impacts on biodiversity
and natural resources.
The Mayor’s draft London Plan makes it clear that to become an
exemplary, sustainable world city, London must use natural resources
more efficiently, increase its reuse of resources and reduce levels of waste
and environmental degradation. As London grows, these objectives will
become ever more important. The shift towards a compact city, which is
inherent in the London Plan, will contribute towards these objectives. It