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DESIGN FOR HEALTHUniversity of Minnesota | June 2008
Planning Information Sheet:
Considering CommunityNoise Issues Through
Comprehensive Planningand Ordinances
Version 1.0
DESIGN FOR HEALTH is a collaboration between the University of Minnesota and BlueCross and Blue Shield of Minnesota that serves to bridge the gap between the emerging
research base on community design and healthy living with the every-day realities of local
government planning.
M e t r o p o l i t a n D e s i g n C e n t e r
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Design for Healthwww.designforhealth.net
© 2008
University of Minnesota
Permission is granted for nonprot education purposesfor reproduction of all or part of written material or images,
except that reprinted with permission from other sources.Acknowledgment is required and the Design for Health
project requests two copies of any material thus produced.
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that all persons shall have equal access to its programs,facilities, and employment without regard to race, color,
creed, religion, national origin, sex, age, marital status,disability, public assistance status, veteran status, or sexual
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Design for Health is collaboration between the University of
Minnesota and Blue Cross and Blue Shield of Minnesota.
The following people were involved in the development of
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Series Editor: Dr. Carissa SchivelyContributors: Dr. Ann Forsyth, Dr. Kevin Krizek, Dr. Carissa
Schively, Laura Baum, Amanda Johnson, Aly Pennucci
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Suggested Citation: Design for Health. 2008. Planning
Information Sheet: Considering Community Noise Issues
through Comprehensive Planning and Ordinances. Version1.0. www.designforhealth.net
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Overview
The Design for Health (DFH) PlanningInformation Sheet Series provides planners withuseful information about opportunities toaddress important health issues through thecomprehensive planning process and plan
implementation. The series addresses a rangeof health issues that are relevant to manycommunities and can be integrated into localplans and policies. This information sheetdiscusses a number of opportunities that plannershave to address community noise issues throughplanning and policy approaches.
Key Points
•Dependingupontheintensity,community
noise (also referred to as environmentaland neighborhood noise) can cause noisepollution. Harmful and unsafe noise pollutionis where noise levels are greater than 70decibels adjusted (dBA).
•Themainsourcesofcommunitynoiseincluderoad,rail,andairtrafc;industries;construction;andneighborhoodactivities,such as recreation and lawn care.
•Mitigatingtheeffectsofharmfulnoise
pollution involves the collaboration of federal,state,andlocallevelsofgovernment.There are a variety of policy and planningapproaches used for dealing with noise-relatedissuessuchasnoiseordinances,noiseassessments (models for forecasting andassessingsourcecontrolaction),noiselimitsandregulations,noise-compatiblelandusecontrols,noisebarriers,andenvironmentalimpact assessment.
•Researchismixedandinconclusiveregardingtheinuenceofnoisepollutiononhumanhealth.Todevelopwell-denedcontrolsonnoise,futureresearchisneededtoaddressthedifferenttypesofnoise,howitismeasured,wherenoisecomesfrom,anditseffectsonpeople.
•Basedonourcurrentknowledge,healthoutcomes associated with noise pollutioninclude: hearing impairment and hearing
loss;interferencewithspeechcommunication;disturbanceofrestandsleep;physiological,mental-health,andperformanceeffects;effectsonresidentialbehaviorandannoyance;andinterference with intended activities. Specialpopulationssuchastheyoung,elderly,blind,and people with certain medical conditions
face even greater potential health effects
Understanding the Relationshipbetween Noise, Health and Planning
Community or neighborhood noise is emittedfromavarietyofsourcesincludingroads,rail,airtrafc,industries,constructionandneighborhoodactivities(Babisch2006;Wende&Ortschcield2003). The health consequences of harmful levelsofnoisecanbesignicant,includinghearingimpairmentandloss,interferencewithspeechcommunication,disturbanceofrestandsleep,as well as the potential for physiological (e.g.heartrate,bloodpressure),mental-healthandperformanceeffects(Bronzaftetal.,1998).Ithas beenshown,mainlyforworkersandchildren,
that noise can adversely affect performance of cognitivetasks.Althoughnoise-inducedarousalmay produce better performance when doingsimpletasks,cognitiveperformancesubstantiallydecreasesformorecomplextasks.Taskssuchasreading,problemsolvingandmemorizationare among the cognitive activities most stronglyaffectedbynoise(WHO1999).Inadditiontothesehealtheffects,noisecanbeanannoyance
Housing located near freeways and rail lines is susceptible to
trafc related noise.
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and interfere with one’s day-to-day activities(WHO1999).Table1belowshowstheaveragesoundlevels,indecibels,oftypicalnoisesources.Hearing impairment or loss can occur at decibellevels of about 70.
Vulnerable subgroups of the general population
should also be considered when recommendingnoise mitigation or regulations. These groupsinclude:theelderly;youngchildren;personswithexistingdiseasesormedicalproblems;personsdealingwithcomplexcognitivetasks(e.g.learningtoread);andpersonswhohavesight,hearing,orlearningimpairments.Becausepeoplein these groups may be less able to cope withnoiseexposure,theymaybeathigherriskforthehealtheffectsnotedabove(WHO1999).
Intermsofregulatingtheeffectsofnoiseto
protectpublichealth,effortshavebeenhampered byinsufcientknowledge.Inordertoestablisheffectivenoisecontrolstandards,thereneedsto be a better understanding of the different typesofnoiseandhowwemeasureit,wherenoisecomes from and its effects on individuals andcommunities(WHO1999).
Noisecontrolisafederal,stateandlocalissuein the United States and ensuring “reasonable”levels of noise is the responsibility of a numberof agencies at the different levels of government.However,whatisconsidered“reasonable”or appropriate can differ by community and
individual. Health noise levels depend on theaudience and include dimensions related tovolume,predictabilityandperceivedcontroloverthenoisesource(Kryter,1994).
ThefederalNoiseControlActof1972(NCA)was established “to promote an environment for
all Americans free from noise that jeopardizestheir public health and welfare.” The NCAprovides for a division of powers between thefederal,stateandlocalgovernments.Inthepast,the Environmental Protection Agency (EPA)coordinated all federal noise control activitiesthroughitsOfceofNoiseAbatementandControl;however,in1982,theEPAofciallyshifted the primary responsibility of regulatingnoisetostateandlocalgovernments.Exceptionsinclude transportation noise sources includingaircraft and railroad operations and commercial
motorvehicletrafcinvolvedininterstatetransport,whichhavesomefederaloversight(U.S EPA 2007).
Another means of addressing noise impactsat the federal level is through the NationalEnvironmentalPolicyAct(NEPA),whichrequires the documentation of environmentalimpacts of federal agency actions and federallyfundedprojects.WhiletheNEPAstatutedoesnotspecicallyaddressnoise,variousfederalagencies provide guidance related to identifyingandmitigatingnoiseimpacts.Forexample,theFederalHighwayAdministration’s(FHWA)
Table 1: Common Outdoor and Indoor Noises
Source: Corbusier 2003
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guidance related to the format and content of EnvironmentalImpactStatements(EISs)requireanoiseanalysis(FHWA1987).Furthermore,theysuggestthatEISsshouldcontainadescriptionofnoisesensitiveareassuchasresidences, businesses,schoolsandparks,aswellastheextentofimpact(measuredindecibels)foreach
sensitivearea(FHWA1987).
Inadditiontothefederalgovernment’sroleasdescribedabove,stateandlocalgovernmentscan be responsible for controlling noise sources andthe levels of noise emitted into the environment.There are a number of tools employed by localagencies to minimize the harmful effects of noisepollution.Forexample,municipaljurisdictionshaveadoptednoiseordinances,whichserveasenforcement mechanisms for controlling noise.Some communities include noise elements in
theirlocalplans,whichsetgeneralplanningguidelines to ensure compatibility and minimalimpacts among nearby land uses (California StateWaterResourcesControlBoard,1999).
Inaddition,localplannersworkingcooperativelywithotherpublicandprivateagenciescanplan,design and construct development projects androadways that minimize the adverse effectsof noise. Effective land-use planning anddevelopment may discourage sensitive land usesnearhighwaysandothernoisesources,promotethe use of open space separating roads fromdevelopments and require special constructiontechniques or time of day requirements thatminimize the impacts of road-related noise(FHWA2006,1995).Moredesign-specictools for limiting roadway noise may include buildingbarriersorberms,establishingtrafccontrolssuchasspeedlimits,alteringverticalorhorizontalalignmentfornewroadways,establishing buffer zones along a right-of-wayandusingquietpavement(Miller,2005).
Planning for Noise Prevention andMitigation
This section provides a number of practicesthat communities might use to more effectivelypreventand/ormitigateexistingandfuturesources of noise. This section addresses bothplanning and regulatory options related to noiseprevention and mitigation.
Addressing Noise in Community Plans
Insomecases,localcityandcounty
comprehensive or general plans are required toaddressnoisethroughincludingaspecicnoiseelement.Forexample,theStateofCalifornia’sGovernmentCode§65302requiresthatanoiseelement be prepared to “identify and appraisenoise problems in the community.” The noiseelement must address various noise sourcesincludingroadways,railroads,transitsystems,aviation,industrialfacilitiesandotherstationarysources such as military installations. Noiseanalysis is intended to inform the pattern of landusesspeciedinthelanduseelement.
Wall barriers can help reduce roadway noise for residential
areas adjacent to freeways.
M e t r o p o l i t a n D e s i g n C e n t e r
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Illustratingtheimplementationofthisrequirement,theCityofSalinas,withanestimated2006populationof145,000andlocated justeastofCalifornia’scentralcoast,includeda noise element in its general plan. The elementstatesasitspurpose(CityofSalinas2002,pageN1):
Toidentifyandappraiseexistingnoiseproblems in the community and to provideguidance to avoid noise and land useincompatibility problems in the future. Thiselementaddressesexistingandprojectednoisesourcesinthecommunityandidentieswaystoreduceexistingandpotentialnoiseimpacts.Inparticular,theNoiseelementcontains policies and programs to achieveand maintain noise levels compatible withvarious types of land uses. These policies
and programs emphasize the need to controlnoisethroughlanduseregulation,aswellasenforcement of other City ordinances.
Thissectionoftheplanspecicallyacknowledgesthe potential physiological and psychologicaleffectsofnoise,aswellasthepotentialforstressand irritation caused by loud noise sources (Cityof Salinas 2002).
TheCityofSalinasalsomakesthedirect
connection between noise and land use andtransportation issues in the general plan. Thenoiseelementspeciesseveralgoalsandpoliciesthat address these connections (City of Salinas2002):
GoalN-1:Minimizetheadverseeffectsofnoisethrough proper land use planning.
PolicyN-1.1:Ensurethatnewdevelopmentcan be made compatible with the noiseenvironment by using noise/land usecompatibility standards and the NoiseContoursMapasaguideforfutureplanningand development decisions.
PolicyN-1.2:Requiretheinclusionofnoise-reducing design features in development andreuse/revitalization projects to address theimpact of noise on residential development.
PolicyN-1.3:LocateonlyurbandevelopmentwithintheSalinasMunicipalAirport“areaofinuence”thatiscompatiblewiththeairportnoise environment and meets the guidelinesoftheCaltranshandbook.
PolicyN-1.4:EnsureproposeddevelopmentmeetsTitle24NoiseInsulationStandardsfor
construction.GoalN-2:Minimizetransportation-relatednoise impacts.
PolicyN-2.1:Ensurenoiseimpactsgenerated by vehicular sources are minimized throughthe use of noise control measures (e.g.earthenberms,landscapedwalls,loweredstreets).
PolicyN-2.2:Controltrucktrafcroutingto
reduce transportation-related noise impactson sensitive uses.
Policy N-2.3: Ensure new developmentwithin the vicinity of the airport does notresult in a land use/noise compatibilityconictorhazard.
GoalN-3:Minimizenon-transportationrelated noise impacts.
PolicyN-3.1:EnforcetheCityofSalinas
NoiseOrdinancetoensurestationarynoise sources and noise emanatingfromconstructionactivities,privatedevelopments/residences and special eventsare minimized. (City of Salinas 2002).
InanotherCaliforniacity,SanDiego,thegeneralplangoesfurther,specifyingpoliciesrelatedto a number of different noise types includingmotorvehicletrafc;trolleysandtrains;aircraft;
commercialandmixed-useactivities;industrialactivities;construction,refusevehicles,parkinglotsweepersandpublicactivities;andevents(CityofSanDiego2007).Inadditiontothesepolicies,thecityspeciesnoisecompatibilityguidelines for various types of land uses. Futuredevelopmentofvarioustypes(e.g.parks,agriculturalresidential,ofces,institutional,industrial)isratedascompatible,conditionally
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compatible (pending an acoustical study) andincompatiblebasedonthelevelofexteriornoiseexposure(indecibels)presentinthatlocation(City of San Diego 2007).
Regulating Noise Impacts
Inadditiontoaddressingnoiseinlocalplans,communities can establish a range of regulationsintendedtodocument,preventandmitigatenoise impacts. The Noise Pollution Clearinghouse(2008)provideslinkstoanumberofordinancesestablished in communities across the U.S. Thissectionsummarizesanumberofthese,aswellasother approaches to regulating noise impacts.
Forexample,theCityofMinneapolis,Minnesota,hasanextensivenoiseordinance.Oneuniquefeature of the ordinance is its approach in
identifying the characteristics and conditionsof a noise that can be used to determine if it is anuisance under the code. The characteristics andconditions include:
•Whetherthenatureofthenoiseisusualorunusual.
•Whethertheoriginofthenoiseisnaturalorunnatural.
•Theproximityofthenoisetosleepingfacilities.
•Thelanduse,natureandzoningoftheareafrom which the noise emanate and the areawhere it is received.
•Thetimeofdayornightwhenthenoiseoccurs.
•Thedurationofthenoise.•Whetherthenoiseisrecurrent,intermittent,
or constant.•Whetherthenoiseisproducedbya
commercial or noncommercial activity.
•Whetherornotnoiseabatementmeasuresare possible and whether or not they areused to reduce the sound level.
•Thenumberofpeopleandtheiractivitiesthat are affected by the noise.
•ThesoundpeakpressurelevelofthenoiseontheAscale,ifknown.
•TheAscalelevelofambientnoise,ifknown.(CityofMinneapolis2008)
Inanotherexample,theCityofWichita,Kansas,addresses noise in the public health section of itsCodeofOrdinances(2008).Thecodeprohibitsloudandunnecessarynoises,statingthat:
Itisunlawfulforanypersontomake,continue,orallowtobemadeorcontinued,anyexcessive,unnecessary,unusualorloudnoise which creates a nuisance or injures
orendangersthecomfort,repose,healthorsafetyofothers,orwhichinterfereswiththeuse or enjoyment of property of any personof reasonable sensibilities residing in oroccupyingtheareaunlessthemakingandcontinuing of such noise is necessary for theprotection and preservation of property or thehealth and safety of some individual” (City of Wichita2008).
Wichita,withapopulationof358,000,prohibitsnoise nuisances emitted from radios and otherelectronicequipment,steamwhistles,musicalinstruments,motorvehicles,peddlers,loadingand unloading (e.g. trash) and construction noiseduringspecictimeperiods(CityofWichita2008).Wichita’scodealsospeciesdecibel(dBA)limits based on the prevalent type of land use inan area. Table 2 below provides a summary:
Table 2: City of Wichita Excessive Noise Limitations
Source: City of Wichita 2008
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TheCityofMesa,Arizona,asuburbofPhoenix,alsoputslimitsonvehiclenoise,requiringthatthefollowinglimitsbemet,whenmeasuredat50feetfromthenoisesource(CityofMesa2008).These regulations are included in the policeregulations section of the City Code. Table 3 below provides a summary.
Recognizingthesensitivityofsomenoisereceptors,Mesaalsolimitsconstructionactivitieswithin500feetofresidentialzones,exceptduringspecieddaytimeandweekdayhours(CityofMesa2008).Inaddition,noiseregulationsprohibit“offensiveorexcessivenoiseonanystreet,sidewalk,orpublicplaceadjacenttoanyschool,institutionoflearning,orchurchwhilethe same is use or adjacent to any hospital whichinterfereswiththeworkingsofsuchinstitution”(CityofMesa2008).
Inadditiontothetypicalcontentseeninothernoiseregulations,TakomaPark,Maryland,hasestablished an additional organizational structuretoaddressnoiseissues.Thiscity,asmallsuburbofWashington,DC,hasestablishedaNoiseControl Board charged with administering andenforcingtheCity’sNoiseControlOrdinance.The Board holds open hearings related to noisedisturbancecomplaints,withpartiesprovidingsworn testimony and presenting and rebuttingevidenceprovided(CityofTakomaPark2008).
Oneothercommonly-usedapproachtoabateandmitigatenoiseimpacts,beyondnoiseandnuisanceregulations,isairportoverlaydistricts.
Whilethesezoningdistrictshaveabroaderfocusonsafety,noiseisanadditionalissueaddressedintheseregulations.Forexample,HighPoint,NorthCarolinahasestablishedsuch an ordinance with a particular focus onnoisefromthePiedmontTriadInternationalAirportintheGreensboro-Winston-Salemarea
incentralNorthCarolina.Specically,oneofthepurposes of the ordinance is to “Ensure land usecompatibility by protecting noise sensitive landuses from objectionable aircraft noise impacts”(CityofHighPoint2008).Theoverlaydistrictconsists of four zones based on the noise impactsexperiencedinthevicinityoftheairport,withlanduseslimitedincertainzones.Inaddition,theordinance requires noise reducing constructionpractices for residential development in certainzones.Onezonerequiresanindoornoisereduction of at least 30 decibels accomplished
throughbuildingdesign,buildingmaterialsandconstruction standards. Another zone requiresthat a “windows closed environment standard” be met through the installation of mechanicalventilation systems that enable windows to beclosed in all climate conditions (City of HighPoint2008).
Transportation corridor overlay districts mayalso be used to mitigate noise impacts from majorroadways.Forexample,theTownofGilbert,aPhoenix,Arizona,suburbanwithapopulationof200,000,hasestablishedtheSantanFreewayCorridorOverlayDistrict.Oneofthestatedpurposesofthedistrictisto,“Mitigatetheeffectsof freeway noise impacts on noise sensitive uses
Table 3: City of Mesa Sound Pressure Limits for Motor Vehicles
Source: City of Mesa 2008
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andprotectthepublichealth,welfareandsafety by establishing noise reduction requirementsapplicable to development of noise sensitiveuses” (Town of Gilbert 2007). The overlay districtapplies to noise sensitive uses that are locatedon parcels fully or partially within 300 feet of the edge of the right-of-way for the freeway.
Toreducenoiseimpactsonsensitiveuses,theordinancelimitsbuildingheightsto150feetandrequires developers to construct noise barriersthatreducenoiselevelsbyatleast5decibels(Town of Gilbert 2007).
Final Thoughts
This document summarizes many of thesalientconnectionsamongnoise,planningandhealth. Planners can employ a variety of meansthrough planning and regulatory tools to abateand mitigate noise impacts for general andspecialized populations. Effective plans andpoliciesrequireextensiveknowledgeofnoiseconditions and a means of assessing the impactsof future development.
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Bronzaft,A.L.,Ahern,K.D.,McGinn,R.,O’Connor,J.,&Savino,B.1998.Aircraftnoise:Apotential health hazard. Environment and Behavior 30(1):101-113.
CaliforniaStateWaterResourcesControlBoard.1999.General Waste Discharge Requirements forBiosolids Land Application Draft Statewide ProgramEIRChapter11,Noise.AccessedNovember21,2007. http://www.waterboards.ca.gov/programs/ biosolids/deir/chapters/ch11.pdf
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Miller,N.2005. Addressing the Noise fromU.S. Transportation Systems: Measures andCountermeasure.TransportationResearchBoardoftheNationalAcademies,Number240.Retrievedfrom http://onlinepubs.trb.org/onlinepubs/trnews/trnews240.pdf
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Wende,H.andJ.Ortscheid.2004.Requirementsfor the protection against aircraft noise. Noise and Health6(24):9-19.
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