Noise. Noise is an invisible pollutant. Chapter 4

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2 Noise is an invisible pollutant Chapter 4 Noise 1] Background: The Noise Issue 169 2] Diagnosis: Noise in Chile 171 3] Noise Causes and Perception 177 3] Actions to Address the Noise Issue 181

3 170 capítulo 4 ruido Noise is an invisible pollutant

4 169 noise chapter 4 Introduction Abstract Noise is an invisible contaminant that produces different effects on health, affecting people s quality of life. Although significant progress has been made in Chile in the management of noise control, it is still necessary to strengthen the regulatory framework and the generation of information, as well as dissemination and education actions. Background: The Noise Issue 1 Noise refers to any sound qualified as disturbing, unwanted, or inappropriate by the person who perceives it. In contrast to other contaminants, noise does not produce any waste, nor does it have any flavor, smell, texture or color, therefore it is usually called an invisible contaminant. Its scope or impact is limited to the characteristics of the source generating it and to the environment where it propagates. Noise is a direct consequence of any human activity and has significant effects on people s health, beyond those exclusively related to hearing. It is a significant stress-inducing agent, it makes communication and learning processes more difficult, it affects the recovery of patients, rest, and sleep, among many other effects that, in fact, progressively affect the quality of life of the population exposed. The level of noise to which a person is exposed to will depend on his or her environment. However, the most aggressive and generalized acoustic surroundings are a direct result of human activity and, thus, their most important manifestation is seen where those activities are located, such as large cities. In this context, the challenge is to ensure that these activities, necessary in a city, do not affect the health and quality of its residents lives.

5 170 chapter 4 noise fig. 1 Plane taking off 100 mts. Rock concert Pneumatic drill Vehicle Traffic Decibel Chart Source: Own elaboration. 140 db 120 db 100 db 80 db Noise Measurement Noise is generally measured in a unit known as decibel, which is a mathematical logarithmic relationship, where an increase of 3 db means that the sound energy increases to double that amount. The population, in general, is exposed to noise levels ranging from 35 to 85 dba. In a normal noise environment, below 45 dba, no one usually experiences any annoyance, which tends to appear once the level reaches 85 dba. Because of this, the threshold where annoyance begins for humans is located between 60 and 65 dba for daytime noise. For example, in a library environment there is 40 dba, a loud conversation one meter away records 70 dba, transit on a hectic street is easily over 85 dba on the curb, and a plane taking off at a distance of 70 meters reaches 120 dba (Bruel and Kjaer, 1984). At an international level, the Organisation for Economic Co-operation and Development (OECD) and the European Union (EU) recommend maximum limits of environmental noise. Both organizations make distinctions between day and night, based on standards representing an average of existing environmental noise for each of the those periods. Maximum Values of Environmental Noise Table 1 Recommended by the OECD and the EU OECD EU Recommendations Conversation 60 db 40 db L D Day 65 dba L N Night 55 dba Note: L D : Equivalent continuous sound pressure level during the day. L N : Equivalent continuous sound pressure level during the night. Source: CONAMA, in a Forest 20 db 1] Lnight,outside is the indicator for night noise (Lnight) of the Directive 2002/49/EC from 25 June These values represent referential standards that enable the development of a common environmental indicator, in order to compare progress in terms of the management of environmental noise control in the member countries. The World Health Organization (WHO) has published a study on night noise and its health consequences -the Night Noise Guidelines for Europe (NNG, 2009)-, in which it indicates that for the primary prevention of adverse subclinical effects on human health, related to night noise, it is recommended that the population should not be exposed to night noise levels higher than 40 db Lnight, outside 1, when most people are asleep. The document also states that this value can be considered as a threshold value for night noise guidelines,

6 171 noise chapter 4 which are necessary to protect the population, including the most vulnerable groups such as children, chronic patients and the elderly, from the adverse health effects of night noise. It is worth noting that the recommendation by the WHO is based exclusively on health criteria. However, it indicates that for sectors where it is not possible to meet that goal in the short term, higher levels can be considered only temporarily and with a maximum of 55 db. Diagnosis: Noise in Chile 2 In order to perform an effective control of environmental noise, it is necessary to have quantifiable and objective information available. It is particularly important to know the current situation of urban areas and to set objectives, as well as to define and apply environmental noise prevention and control programs, according to the local situation in each city. The Baseline study on the generation of noise levels in the Greater Santiago area was carried out in 1989, in the Metropolitan Region, at the request of the Metropolitan Intendence, with the aim of assessing and analyzing external community noise, in an area covering about 280 km 2. Approximately 3 million people lived in this spatial coverage, distributed in 180 census districts according to data gathered from the 1982 population census, corresponding to 23 communes of the Metropolitan Region. The study detected the areas where the sound situation presented higher noise levels. At the same time, it enabled the identification of the population exposed to urban noise, considering national and international regulations. This study was updated by the Metropolitan Health Service for the Environment (SESMA, by its acronym in Spanish) in One of the outstanding findings was that the application of the sleep disturbance criteria of the Environmental Protection Agency (EPA) of the United States revealed that in the study area there was no place without risk of sleep disturbance.

7 172 chapter 4 noise 1989 Quilicura Huechuraba Sleep Disturbance Risk Map, fig. Greater Santiago Area Renca Conchalí Independencia Recoleta Vitacura Las Condes Sources: Intendence 1989, SESMA, Cerro Navia Quinta Normal Providencia Pudahuel Lo Prado La Reina Santiago Ñuñoa Estación Central Pedro Agrirre Cerda Macul Peñalolén Maipú San Miguel San Joaquín Cerrillos Sleep Disturbance Risk (EPA) Lo Espejo Below the criterion: Leq Night below 50 dba Above the criterion: Leq Night between 50 dba and 60 dba San Bernardo El Bosque La Cisterna San Ramón La Pintana La Granja La Florida Above the criterion: Leq Night between 60 dba and 70 dba 2001 Quilicura Huechuraba Above the criterion: Leq Night over 70 dba Conchalí Vitacura Renca Recoleta Independencia Las Condes Cerro Navia Quinta Normal Providencia Pudahuel Lo Prado La Reina Santiago Ñuñoa Estación Central Pedro Agrirre Cerda Macul Peñalolén Maipú San Miguel San Joaquín Cerrillos The maps published in this report that refer to or are related to limits or boundaries of Chile do not commit the State of Chile in any way, according to Article 2, letter g of the Decree with Force of Law N 83 of 1979 of the Ministry of Foreign Affairs. The Cartographic information is based on Datum WGS84 and it is mearly referential. San Bernardo Lo Espejo El Bosque La Cisterna San Ramón La Pintana La Granja La Florida According to the updated results (2001), 0.7 percent of the population (18,691 people) lives in places where the standard is surpassed by up to 10 dba, 72.9 percent of the population (2,005,761 people) is located in sites where the standard is surpassed by up to 20 dba, and 25.8 percent (710,265 people) lives in places where the standard is surpassed by more than 20 dba.

8 173 noise chapter 4 The findings of these studies show that while the population being studied grew 1.9 percent, 37 percent of it saw its contamination increased and only 1.5 percent saw it reduced. Moreover, only 16.3 percent of the population presents no risk of hearing loss (EPA criteria, USA). Likewise, there is no population in the area of study whose housing is located in a suitable sector, according to the recorded noise levels (HUD, Department of Housing and Urban Development, USA). In 2007, Chile decided to create Noise Maps as a diagnosis tool. These maps provide valuable information on the real noise levels present in a city or a sector of it. They also help to identify problem areas in order to guide prevention and control measures, such as: Promoting the creation of a noise quality standard; highlight noise as a variable for decision making in territorial planning instruments; or promoting the application of criteria on acoustic isolation during the building process. The periodic use of this tool is compulsory for cities of the European Community; however, in Latin America there are no noise modelling studies for large cities. Predictive models are used for noise mapping, based on methods for calculating noise emission and propagation. Even though the use of models requires making some measurements to calibrate them, a computing tool gives the advantage of being able to analyze future scenarios in a simple manner and cover large spatial extensions. To date, noise maps have been made for the communes of Antofagasta and Providencia (2009), as pilot cases, and Santiago (2010). According to the Noise Map of Antofagasta, 42 percent and 78 percent of the city area exceeds these recommendations for night and day, respectively (Figure 3). In the case of Providencia (CONAMA, 2009), approximately 32 percent of its area is over 65 dba during the day and 64 percent is over 55 dba at night, which are the maximum recommended limits, not only by the OECD but also by the EU (Figure 4). Likewise, and in terms of its surface, the Noise Map of the Santiago Co-mmune reports 54 percent over 65 dba during the day, while 60 percent is over 55 dba at night (Figure 5, excerpt from the Noise Map of the Santiago Commune). It is worth noting that the noise maps have been created considering the exclusive contribution of vehicle traffic, leaving out other noise sources. This is explained by the fact that the existing noise in the city, urban noise, is mostly produced by this traffic. Other sources do coexist, but they are generally masked by traffic. Because of that, characterizing this single source not only makes modelling work easier, but also helps to obtain a situation very close to reality, which

9 174 chapter 4 noise has been ratified by specific measurements that validate the method. Map results should be interpreted considering different factors, for instance, in terms of the sensitivity of existing activities in those areas above the recommended standards. That is, the seriousness of sound situation in an area will depend on the time of exposure and the degree of compatibility of an activity in relation to noise. Therefore, those areas with high noise levels are not compatible with sensitive activities such as hospitals, schools and libraries, but they can be with commercial or industrial activities. Incompatibility is linked to the extent of interference caused by noise in the normal development of an activity. In spite of these studies, in general there is a complete lack of information on the noise levels present in Chilean cities. Moreover, there are no source registries or emission inventories. Furthermore, the size of the population potentially affected by this contaminant is unknown. There are only studies for Santiago and basic diagnoses in some cities of the country, which, besides being insufficient, have applied different methodologies, which makes it impossible to compare their results. It is worth noting that the creation of the Noise Map of the Greater Santiago area by modelling had begun in 2011, covering a geographical extension that encompasses the Santiago province, as well as the Puente Alto and San Bernardo communes, with a total of 34 communes. Based on this research, and through close cooperation and collaboration with the Ministry of Transportation and Telecommunications, mechanisms will be defined to replicate this initiative in the most important urban centers of the country, in order to obtain noise maps of the main city in each region with periodic updates.

10 Antofagasta fig. 3 Noise Map Antofagasta Commune, 2009 Note: Maps in Figures 3, 4 and 5 represent the LDN parameter, which corresponds to the average noise value for a 24- hour period, and a correction factor for the night hours. Source: Own elaboration, based on CONAMA, Lord Cochrane Amunátegui Blanco Encalada Providencia Commune Argentina Linares The pictures show the overlapping of noise maps obtained through predictive models on images sourced from the Google Earth free application. fig. 4 Noise Map Providencia Commune, 2009 Source: Own elaboration, based on CONAMA, Carlos Antúnez Europa Pedro de Valdivia.. = 35.0 dba =40.0 dba =45.0 dba =50.0 dba =55.0 dba =60.0 dba =65.0 dba =70.0 dba =75.0 dba =80.0 dba =85.0 dba

11 Santiago Commune Noise Map Santiago Commune, 2010 Source: Own elaboration based on Ministerio del Medio Ambiente, fig. 5 Santa Lucía Libertador Bernardo O`Higgins Diagonal Paraguay.. = 35.0 dba =40.0 dba =45.0 dba =50.0 dba =55.0 dba =60.0 dba =65.0 dba =70.0 dba =75.0 dba =80.0 dba =85.0 dba Santa Lucía

12 177 noise chapter 4 Noise Causes and Perception 3 As mentioned above, noise is defined as any sound qualified as annoying, disturbing or inappropriate by whoever perceives it. This qualification varies from person to person, and even for the same person at different times. A simple example is music, which for one person can be pleasant while for other receptors annoying. Furthermore, the same person who likes music may consider it unpleasant when wanting to rest. This qualification, assign-ed by each individual when interacting with the objective world of sound, corresponds to the subjective component of noise and is called perception. Noise Sources The main sources of noise in urban areas are currently linked to means of transportation of people and goods, with vehicular traffic as the most outstanding. This situation is based not only on the dramatic increase in the vehicle fleet during recent years, but also on the fact that, in general, cities in which these vehicles circulate have not been designed to hold them. The basic level of sound emissions of vehicle circulation is determined by the noise of engines and exhaust devices. Another source of vehicle noise is that of the tires in contact with the pavement, which quickly becomes louder as speed increases. For light vehicles, tires and surfaces are the main noise sources at speeds of over 60 km/h (37 mph). In urban areas, one of the relevant factors affecting sound emissions is driving behavior. Sudden accelerations and the increase of engine rotation in dense traffic situations can emit up to 15 dba above regular emission levels derived from more passive driving (Commission of the European Communities, 1996). Besides vehicle traffic noise, railway and aircrafts also produce high noise levels, but for short periods. Likewise, noise from industrial facilities, workshops or construction sites, called stationary sources, generally have a localized impact on their neighboring environment.

13 178 chapter 4 noise Noise Sources fig. 6 Stationary Sources Mobile Sources Linear Sources Noisy Behavior Among Neighbors Airport However, transport and industrial facilities are not the only current causes of the sound situation in cities. Human activity, as a result of the increase in population density, also contributes to rising sound levels in urban centers, particularly in areas with night entertainment, especially during weekends. Complaints against noise In Chile, research has been carried out in order to determine the community perception of noise in some cities. In Talcahuano (1997), vehicle traffic is considered the most significant source of noise in the commune. Later studies from in Valparaíso, Iquique and Temuco yielded similar data in terms that traffic is considered the most relevant noise source, along with the noise generated by people (neighbors). In these three cities, over 60 percent of interviewees declared to be annoyed by noise. In Valdivia (2000) more than 90 percent of the population considers that the noise has a medium to high influence in its quality of life. On the other hand, the result of a survey carried out in the Providencia commune in 2004 showed that ambient noise is qualified by neighbors as the main environmental problem. Based on a public consultation conducted by CONAMA during 2009 of noise complaints received in by the municipalities of the main cities of the country, it was determined that most of these complaints correspond to behavioral issues, such as private parties, followed by stationary sources, as shown in Figure 7.

14 Noise Sources with More Complaints Source: Own elaboration, based on data fig. from a consultation carried out by CONAMA in 2009 to municipalities in the country. 7 56% Behavioral 30% Stationary 14% Other Vehicle Traffic Outdoor Markets Events in Public Places Other

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16 181 noise chapter 4 Actions to Address the Noise Issue 4 Since the promulgation of the Environmental Framework Law N , noise is defined as a contaminating element and different instruments are established in order to begin managing ambient noise control. In this context, dissemination and awareness actions have been designed on this issue, as well as regulations aimed at preventing and controlling environmental noise. These regulations have enabled establishing corrective measures, which also contribute to prevention due to their required compliance within the Environmental Impact Assessment System. The regulatory framework for ambient noise, to date, only has two environmental emission standards: π Supreme Decree N 146/97 MINSEGPRES - Standard for Annoying Noise Emission generated by Stationary Sources. It establishes maximum permissible limits, differentiated by night and day periods, and depending on the area where the noise receptor is located. This standard operates by complaint and is included in the evaluations of the Environmental Impact Assessment System (SEIA). It is in the revision stage. π Supreme Decree N 129/02 MINTRATEL - Standard for Noise Emission by Urban and Rural Public Buses. This regulation sets standards for entry-level and later control through technical inspections. When it entered into force, it was also applied to existing buses. It is worth noting that there are two standards currently being developed: π Standard for Noise Emission by Construction Activities. This includes preventive requirements, such as a work plan to reduce potential disturbances. π Standard for Noise Emission from Light and Medium Vehicles and Motorcycles. Similar to the bus noise standard. Requirements will be established for their entrance into the vehicle fleet and controls in technical inspections. It is also important to highlight that the environmental management tools

17 182 chapter 4 noise established in Law N do not include a regulation linked to the noise receptor, which would enable, for example, to set minimum values for acoustic quality for buildings. In order to achieve this, the National Institute of Standardization (INN, by its acronym in Spanish) was asked to create a technical regulation, non environmental and referential in nature. This standard acknowledges the need for sound isolation in the facades of residential buildings, taking into account the existing noise in the place in which it is intended to be built. π NCh 352/1. Of Sound Isolation Part 1: Constructions for residential use -Minimum requirements and trials (2000). Although this is not an official standard, it is almost exclusively used as reference, since its application is not explicit in the General Urbanism and Constructions Ordinance (OGUC, by its acronym in Spanish). Because of this, a coordination work has begun with the Ministry of Housing and Urbanism, aimed at promoting the application of the standard as part of the Ordinance framework, in order to establish sound isolation requirements. Another important regulation, due to its direct application at the local level, is that of municipal ordinances. On this topic, a thorough revision has been made of these instruments, as well as the attributions of Municipalities. As a result, it is expected to obtain a Municipal Noise Ordinance Model, with the objective of having a single and technically valid document, that can later be made available to municipalities, within the framework of the Municipal Environmental Certification System, which is being developed by the Ministry of the Environment.

18 183 noise chapter 4 References Bruel & Kjaer, Measuring Sound, Naerum. Denmark. Comisión de las Comunidades Europeas, Libro verde de la Comisión Europea, política futura de acción contra el ruido. Brussels, Belgium. Available at: Comisión Nacional del Medio Ambiente (CONAMA), Estudio elaboración de mapas de ruido mediante software de modelación para caso piloto (comunas de Antofagasta y Providencia). Santiago, Chile: CONAMA. Intendencia Región Metropolitana, Estudio base Generación de niveles de ruido. Santiago, Chile. Ministerio del Medio Ambiente (MMA), Elaboración de Mapa de Ruido comuna de Santiago mediante software de modelación. Santiago, Chile. Ministerio del Medio Ambiente Ministerio de Transporte y Telecomunicaciones (MTT). Norma de Emisión de Ruido para Buses de Locomoción Colectiva Urbana y Rural. Supreme Decree N 129/02. Santiago, Chile. Mintratel. Ministerio Secretaría General de la Presidencia (Minsegpres). Norma de Emisión de Ruidos Molestos generados por Fuentes Fijas. Supreme Decree N 146/97. Santiago, Chile. Minsegpres. World Health Organization (Who), Regional Office for Europe, Night Noise Guidelines for Europe. Copenhagen, Denmark. WHO Regional Office for Europe.