The Mayor’s Ambient Noise Strategy – Progress Report, October 2006 1. Introduction 1.1 Background The Mayor’s Ambient Noise Strategy, Sounder City, was published in March 2004, following widespread public consultation. It sets out a comprehensive agenda aimed at securing support for minimising noise and improving soundscape quality across the capital. The first progress report covered the period between 31 March 2004 and 31 January 2005. This is the second report on implementation of the strategy, covering the 18 months from 1 February 2005 to 31 July 2006. Its focus is on action by the Greater London Authority and Transport for London to minimise the impact of ‘ambient noise’ – ongoing noise in the environment, mainly from transport – rather than from ‘noisy neighbours’ or other nuisance, where powers are exercised by London borough councils, or hearing protection in workplaces, which is dealt with primarily by the Health and Safety Executive. As the first citywide strategy of its kind in the UK, it effectively acts as a pilot for the national noise strategy, which is now expected during 2007. The London strategy thus sets out a comprehensive agenda, with 97 policies and 28 proposals for protecting and improving noise environments in London, seeking to influence the actions of others, including central government. As the national noise strategy is prepared, along with development of noise mapping and action planning, it will be possible to establish priorities that will be acoustically effective, administratively deliverable and affordable. The Mayor is keen to play his part in this, in partnership with central government, boroughs and others. 1.2 Implementing the Strategy A partnership approach is vital to implementation. Transport for London has a significant role to play in integrating noise management in transport systems, and maximising opportunities for improvement during system upgrades, refurbishment and renewal. The London Development Agency will be in an increasingly stronger position to contribute as it focuses its regeneration and economic development activity in key areas of change across the city. The role of the London boroughs is critical, and other agencies such as the Environment Agency, industry, and voluntary organisations have key contributions to make. Delays by central government in allocating key responsibilities for implementation under the European Environmental Noise Directive 2002/49/EC have so far made it impractical to establish formal partnership arrangements. Regulations1 on implementing the Directive were laid before Parliament in September 2006. These specify that central government will directly commission the first round of noise mapping, due in 2007, and action planning, due in 2008, for all relevant areas including London. The Mayor had earlier put the case for a two stage approach, modifying the government’s original proposals2. In this approach, a first government-commissioned technical analysis would have been followed by a second stage in which actions would be integrated by the Mayor and others in their regional and
‘The Environmental Noise (England) Regulations 2006, Statutory Instrument No. 2238. Laid before Parliament 7 September 2006; coming into force 1 October 2006. Available via www.defra.gov.uk 2 ‘Consultation on proposals for transposition and implementation of Directive 2002/49/EC of the European Parliament and of the Council of 25 June 2002 relating to the assessment and management of environmental noise’ Department for Environment, Food and Rural Affairs, February 2005. Available from www.defra.gov.uk
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local transport, planning and environmental programmes. This was believed to be more cost-effective and accessible. Further discussions are taking place to clarify the role of key bodies and the scope for partnership in London. The Greater London Authority (GLA) Noise Team has been making progress through joint working arrangements. The Mayor has not so far been given new powers or resources specifically to reduce noise, and proactive management of ambient or environmental noise (mainly from transport and industrial sources) is less developed and resourced in the UK than is the case in many other areas of environmental policy. With limited resources, and a GLA Noise Team of only two staff, there is a need to maximise the delivery of the Ambient Noise Strategy through taking proper account of noise issues in strategic planning applications, draft development plans, transport plans and projects, and other strategies, policy documents and initiatives. Specific numerical targets have not so far been adopted for the Mayor’s Ambient Noise Strategy, pending national strategy preparation and implementation of the European Environmental Noise Directive. Regulations recently laid before Parliament1 require central government to publish guidance setting out ‘limit values’ or other criteria for the identification of priorities for action plans no later than 18 July 2007. The overall qualitative aim of the Mayor’s Ambient Noise Strategy is ‘to minimise the adverse impacts of noise on people living and working in, and visiting London using the best available practices and technology within a sustainable development framework.’ Three key issues have been identified: Securing good, noise reducing surfaces on Transport for London’s roads. Securing a night aircraft ban across London. Reducing noise through better planning and design of new housing. Other initial priorities include extending noise reducing surfaces across all roads where effective, less disruptive streetworks, encouraging quieter vehicles, smoothing traffic flow, ‘Streets for People’ and similar measures, developing a Traffic Noise Action Programme for TfL roads, trialling fuel cell and hybrid-electric buses, improving railway track quality and maintenance, securing photovoltaic noise barriers, and promoting exemplary acoustic design more widely. 2. Promoting action to reduce noise and improve soundscapes Some of the main projects pursued during the year are outlined below. 2.1 Photovoltaic noise barriers Innovative noise barriers with solar cells generating electricity for local or wider use can help reduce both greenhouse gas emissions and noise. The GLA commissioned work from TRL Limited on the scope for small and medium scale demonstration photovoltaic noise barrier projects at surface locations on the London Underground system. This indicated limited potential in the context of current constraints and cost-effectiveness. A set of factsheets has been produced, including for Network Rail and Docklands Light Railway, to inform future noise barrier work, notably in action plans required by mid 2008 under the Environmental Noise Directive. Assessing opportunities for photovoltaic and other noise
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barriers will be included by Transport for London in its network management work. Innovative noise barriers on borough roads may also be supported through the Local Implementation Plan process linked to the Mayor’s Transport Strategy. 2.2 Relative tranquility and soundscape quality The objectives of the Environmental Noise Directive include ‘preserving environmental noise quality where it is good’, and increasing attention is being given to protecting ‘quiet areas’ as well as reducing noise levels where they are high. In a busy city, areas may have value relative to their surroundings, even if they may not necessarily all meet a particular definition of ‘quiet’ in terms of falling below a specific noise level. Atkins Consulting Limited has been commissioned to advise on developing strategic policy advice related to relative tranquillity and soundscape quality, to inform the Further Alterations to the London Plan (Policy 4A.14)3. Regulations recently laid before Parliament1 require central government to identify quiet areas, by further regulations, no later than 30 September 2007. 2.3 Developing popular soundscape indicators The Mayor’s Ambient Noise Strategy promotes positive soundscape management, which includes not just reducing noise, but considering the overall quality of how places sound. Arup Acoustics has been commissioned to investigate development of Popular Soundscape Indicators, with a focus on public spaces. The project included assessing evidence as to the sorts of soundscape features or characteristics likely to be of popular value in London. It included assessing how the extent of normal audibility of a sound like Big Ben might be used as a popular indicator of reduction in traffic noise, in the same way that, for example, the presence of salmon has been used as a popular indicator of water quality. Making such indicators operational for sound will require further work, and resources will need to be sought for this, such as through sponsorship. 2.4 Innovative Sustainable Acoustic Design Noise control at or close to its source is, of course, the ideal, but cannot always be achieved in the short term. Arup Acoustics was commissioned to explore and assist in promoting innovative Sustainable Acoustic Design, especially for residential and commercial development at higher densities, and near sources such as busy streets. The project included reviewing implementation issues, notably potential tensions between energy/climate change objectives and good acoustics, and recommending ways of resolving such tensions. This work supplements that on ‘Sound-conscious urban design’ reviewing a series of examples from around the world of imaginative urban design addressing noise and soundscape issues. This work will be used in negotiations with planners, architects and developers to improve the quality of new developments. 2.5 Principles of Acoustic Design To influence planners and others in the early design process, Scott Wilson consultancy group was commissioned to develop illustrated guidance and advice promoting greater attention to the fundamentals of design to reduce noise. The project aimed to improve application of established ways of addressing noise in basic design, with a focus on noise control at source, or between source and receptor, wherever practicable. Issues covered included mechanisms of sound generation, transmission and propagation, design and control principles in building and environmental acoustics, and illustrative examples, suitable for use in early planning negotiations.
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http://www.london.gov.uk/mayor/strategies/sds/further-alts/
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2.6 Wildweb Sound Wildweb4, a website providing one-stop information on London’s higher quality open spaces, was improved and extended. This included adding sounds, provided by recordists Peter Cusack, Chris Watson and others, of key bird, insect and other species, and the soundscapes, or ‘atmospheres’, of particular places. Some sounds can be downloaded as mobile phone ringtones. The site aims to show how sound can enrich people’s experience of wildlife, even in a large city. If sponsorship can be found, the aim is to further extend the number and variety of sounds, and develop ways in which Londoners can become involved. 2.7 Other projects Work on other projects included input to a new vision for Victoria Embankment, coordinated by the Mayor’s Architecture and Urbanism Unit, to ensure that soundscape issues were fully taken into account. With climate change, higher temperatures, particularly on summer nights, will make it more likely people will want to have their windows open, and could lead to more noise from some forms of building cooling. Research was thus supported on the Urban Heat Island to inform the first review of the London Plan, and the Mayor’s proposed Climate Change Adaptation Strategy.
3. Statutory and other planning activity 3.1 Planning referrals Planning applications for development are made to London boroughs and the City of London, with major cases being referred to the Mayor for direction under the Town and Country Planning (Mayor of London) 2000 Order. The GLA Noise Team provides general advice, and more specific advice on the noise implication of the more complex applications. Planning applications can require widely varying levels of input, with the need for more indepth work having grown as London Plan policies have become more established. Substantial preparation work is required if a public inquiry results, as with a proposal for Peruvian Wharf for which noise evidence was given. Comments were provided within the timescale required by GLA Planning Decisions Unit on some eighty new development proposals in the 18 months between 1 February 2005 and 31 July 2006, in addition to follow up work on a number of earlier cases. It can, of course, take several years for major proposals to come to fruition, with designs often passing through several iterations, in response to input from several agencies, and balancing many environmental and other objectives. It is thus not generally practicable to attribute project outcomes to specific individual inputs. Noise and soundscape improvements are sought wherever appropriate, such as improving separation of homes, schools or other sensitive uses from traffic and other noise sources, and enhancing screening. Major proposals dealt with included White City, King’s Cross, and the Olympics/Lower Lea Valley. 3.2 Development planning London Borough’s Local Development Documents are referred to the Mayor under the Town and Country Planning (Mayor of London) 2000 Order. The Mayor must ensure that these are in general conformity with his London Plan. The GLA Noise Team provides
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http://www.london.gov.uk/mayor/environment/biodiversity/wildweb.jsp
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advice to the Mayor on the noise implications. As with planning applications, the volume of work depends not only on the number of development plans being referred, but the nature of the issues. Comments were provided within the deadline set by the GLA Planning Decisions Unit on some fifteen documents for which comments were sought, in the 18 months between 1 February 2005 and 31 July 2006. Improvements were sought wherever possible in the noise policies of the plan-making authority, in line with the London Plan. Comments were also provided on master plans, such as the draft for London City Airport, and area studies, such as for areas around the Royal Docks. 3.3 Technical and policy advice The GLA Noise Team provided technical advice where required to other parts of the GLA, Transport for London, London Boroughs and others on policy development, major projects, planning issues and proposals with strategic implications. Transport for London has executive responsibilities for implementing schemes, in some cases in conjunction with other parties such as the Department for Transport, balancing the needs for effective noise management with other issues. Projects being progressed include Crossrail, East London Line Extension, West London Tram, and Thames Gateway Bridge. A public inquiry has been taking place into the bridge application, and a decision will be made by the Secretary of State. 4. Progress under the Mayor’s Ambient Noise Strategy Objectives This section gives examples of progress under each of the objectives of the Mayor’s Ambient Noise Strategy. These expand on the Mayor’s overall aim outlined in section 1.2. The objectives are expressed qualitatively, and should be seen as interim, pending further development of the new national and European framework for noise management. 4.1 To minimise the adverse impacts of road traffic noise A very wide range of transport activity supports this objective. For example, improved provision for cycling and walking encourages shifting from noisier modes of travel, and smoothing traffic flow can deliver noise benefits. Transport for London has many relevant executive responsibilities. Progress on implementing the Mayor’s Ambient Noise Strategy policies and proposals on road traffic noise is reported on separately, including in Transport for London’s Environment Report 20055. Transport for London has investigated the use of road surfacing materials that have noise reducing properties, and concluded that the surface materials used contribute to traffic noise reduction on the Transport for London Road Network. In addition, road maintenance works reduce noise incidents by removing potholes and loose ironwork. Transport for London will be developing further network management measures to address the problem areas identified by noise mapping. Boroughs have been preparing their Local Implementation Plans, setting out how they will implement the Mayor’s Transport Strategy, also taking proper account of his Ambient Noise Strategy. On 12 December 20056 the Mayor announced a record level of funding for London Boroughs to spend on local transport improvements in 2006/7, including funding for initiatives to reduce noise. Examples are noise barrier studies, testing of materials with noise reducing properties, and noise monitoring stations in several boroughs.
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Transport for London Environment Report 2005 http://www.tfl.gov.uk/tfl/reports/environment.asp Funding programme for local transport improvements, see http://www.tfl.gov.uk/tfl/press-centre/pressreleases/press-releases-content.asp?prID=621
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4.2 To encourage preferential use of vehicles which are quieter in their operating conditions Detailed progress under this objective is reported on separately by Transport for London6. Trials by Transport for London of hydrogen fuel cell buses, most recently on route RV1, have been extended until the end of 2006. The buses have been very popular, with quiet, smooth operation being one of the benefits appreciated by the public. An invitation to tender for 10 to 12 new hydrogen fuel cell buses has been issued. The Mayor is aiming to secure at least 70 hydrogen fuel cell vehicles across the fleets of Transport for London and the other ‘functional bodies’ by 2010. The Mayor has been backing the London Hydrogen Partnership whose work includes investigating how hydrogen-fuelled transport may be best progressed. Hybrid-electric vehicles using conventional fuels, but with a smaller engine combined with a battery, also have the potential to be quieter. Transport for London are piloting six new hybrid diesel-electric buses which produce less noise than conventional buses. An enhanced bus noise ‘type approval’ test has been introduced for all new London buses coming into service from 2006/7. A BTEC bus driver training programme contributes to smoother driving, and thus lower noise. Transport for London operates a 100% discount on the Central London Congestion Charge to encourage the use of vehicles powered by certain alternative fuels. Many of these are quieter than conventionally fuelled vehicles. Transport for London has published results of monitoring of impacts of the Congestion Charge7. 4.3 To minimise the adverse impacts of noise from freight and servicing The Mayor, working with the London Boroughs, gained a 2005 John Connell Award for a Quieter Streets initiative promoting use of quieter broadband reversing alarms on waste vehicles. Such alarms are already required on all new Transport for London Dial-a-Ride vehicles and new buses, and are being trialled on other ‘functional body’ vehicles. Detailed progress by Transport for London under the freight and servicing objective is reported separately5. Public consultation was carried out by Transport for London on the London Freight Plan between June and September 2006. The freight operators’ recognition scheme in 2006/7 should help to reduce noise produced by operators’ activities. The aim is to reduce emissions as well as noise from operators’ fleets, while realising economic efficiencies. 4.4 To promote effective noise management on rail networks in London Detailed progress on implementation of the Mayor’s Ambient Noise Strategy policies related to railway noise is reported on separately by Transport for London, for example in the London Underground Environment Report 20058 and overall Transport for London Environment Report6. The main issues for noise and vibration on the underground relate to the wheel-rail interface (e.g. groundborne vibration from tunnels), engineering or construction works, public announcements and train whistles. The London Underground track replacement programme is giving significant noise reductions at some locations, as where new continuously welded track is introduced. Other mitigation measures include rail grinding and track lubrication, and vibration blankets in underground tunnels. Findings from
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‘Central London Congestion Charging: Impacts monitoring – Fourth annual report’ Transport for London, June 2006, see http://www.tfl.gov.uk/tfl/cclondon/pdfs/FourthAnnualReportFinal.pdf 8 http://www.tfl.gov.uk/tube/downloads/pdf/reports/environmental-report-2005.pdf
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CONVURT9 are being adapted for application, e.g. in track condition monitoring. The number of noise-related complaints received by London Underground rose from 280 in 2003/4 to 488 in 2004/5. This was largely due to increased construction and maintenance activity associated with PPP10 improvement works. Mitigation measures include using noise risk assessments and noise modelling to estimate the number of properties potentially affected by station works, and determining site controls and timing of works to reduce impact as far as possible. The Docklands Light Railway’s Noise and Vibration Policy includes specific local targets, noise monitoring and maintenance procedures. Noise mitigation measures are applied to DLR extension projects, such as to London City Airport and Woolwich Arsenal, in accordance with this policy. Issues in respect of Crossrail, East London Line Extension and West London Tram are being addressed through planning and other statutory processes as these schemes are developed. For example, a special Acoustic Sub-group met to progress decisions on the East London Line Extension. Network Rail has been improving its track quality management systems. Allocation by Government of action planning responsibilities under the Environmental Noise Directive will determine how railway noise management can be further improved. The Mayor gave a grant to the Noise Abatement Society to assist in its action with the national rail industry to tackle the problem of new louder train horns on surface railways. The Rail Safety and Standards Board has instituted a programme of work including assessing a broadband alternative, and reviewing the scope for reducing use of horns. 4.5 To minimise the adverse impacts of aircraft noise in London, especially at night The Government has key responsibilities for managing aircraft noise at Heathrow, Gatwick and Stansted. There are significant concerns for Londoners, particularly in respect of proposals in the Air Transport White Paper11 for a third runway at Heathrow, and for moving away from alternating the use of the two existing runways. The Mayor has continued to play his part in ensuring that the case for protecting Londoners is properly put. An ICM poll was commissioned to gauge Londoners’ views on moving away from runway alternation. At present, between 7 am and 3 pm, aircraft coming in to Heathrow over London normally land on only one of the two main runways. At 3 pm, landings normally switch to the other runway. This is known as ‘runway alternation’ and was introduced to give West London residents under the landing paths a predictable half day break from aircraft noise. In the ICM poll, conducted in February 2006, three quarters of residents interviewed said runway alternation was important in helping to reduce the impact of aircraft noise on people in West London. Forty per cent were bothered by aircraft noise during the day, and 44% thought it had got worse over the last ten years. The Mayor gave a grant to Project Heathrow Watch12 to support work on the likelihood of air quality and noise objectives being met if a third runway were built. The resulting report
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CONVURT (Control of Noise and Vibration from Underground Rail Traffic), a cross-European project aimed at improving capabilities in noise and vibration management, which was co-ordinated by London Underground, concluded in 2004/5. 10 PPP (Public Private Partnership) is the arrangement by which infrastructure companies Tube Lines and Metronet Rail carry out maintenance and renewals on the underground. 11 ‘The Future of Air Transport’ White Paper, December 2003, http://www.dft.gov.uk/stellent/groups/dft_aviation/documents/divisionhomepage/029650.hcsp 12 Project Heathrow Watch is a group chaired by John McDonnell, MP for Hayes and Harlington, including local MPs, local and regional authorities, and voluntary organisations, formed to independently monitor and
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'Emissions Impossible' by the Aviation Environment Federation13 included assessment of how the noise climate would be likely to deteriorate if expansion took place. The report saw proposed growth in number of flights as causing the noise climate to deteriorate, with a loss of quiet periods, even if the Government’s target for the area of the ‘averaged’ noise contour were met. The Mayor also approved a grant to Project Heathrow Watch to commission research on how wider aircraft flightpath impacts on Londoners have been changing. Response was made to government consultation on night flights, reiterating the Mayor’s support for a ban. Technical work related to aircraft noise, to ensure that noise impacts and any proposals for changes are fully understood, has also been supported through the local authorities Air Noise Working Group. 4.6 To minimise the adverse impacts of noise on or around London’s rivers and canals, while retaining working wharves and boatyards, and enhancing water space tranquillity and soundscape quality This objective has been addressed through work on planning applications referred to the Mayor, development plans and major projects. Such work has taken full account of working wharves and other waterspace issues. Evidence was presented on working wharf issues at the planning inquiry into proposals at Peruvian Wharf in Newham. The inspector’s decision is expected in the latter part of 2006, and could have wider implications for future work on safeguarded wharves. 4.7 To minimise the adverse impacts of industrial noise, recognising the use of best practicable means/best available techniques, and the need to retain a diverse and sustainable economy Advice on noise issues has been provided in relevant policy areas, including to the London Plan Team in respect of industrial land issues. Input has also been made on noise issues in specific planning referrals, and this work will continue. 4.8 To improve noise environments in London’s neighbourhoods, especially for housing, schools, hospitals and other noise-sensitive uses This objective has been primarily addressed through advice on major planning applications for housing, schools and other noise-sensitive uses, and contributions to review of the London Plan and preparation of Best Practice Guidance on the evening economy. Although poor sound insulation between homes within existing buildings may be considered a ‘neighbour’ rather than ‘ambient’ noise issue, concerns about noise in homes expressed during public consultation on Ambient Noise Strategy were followed up in a commissioned study14, which recommended a range of measures to improve sound insulation, including a conference to prompt discussion and action. A major conference on Quiet Homes was arranged and took place in City Hall on 3 November 2005. Attended by a wide range of individuals and organisations, the conference helped to raise awareness of poor home sound insulation, including through media interviews with key speakers. Opportunities to address this issue through the Mayor’s new housing strategy powers will be further considered. 4.9 To protect and enhance the tranquillity and soundscape quality of London’s open spaces, green networks and public realm
scrutinise the work of Project Heathrow, chaired by the Department for Transport, which is overseeing official work assessing expansion proposals. 13 http://www.aef.org.uk/downloads/EmissionsImpos.pdf 14 ‘Quiet Homes for London’ http://www.london.gov.uk/mayor/strategies/noise/index.jsp
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A consultancy project on issues of tranquillity and special soundscape quality was commissioned to inform review of the London Plan. Workshops were held with users and practitioners as part of this project, and on ‘Planning for Soundscape Quality’. Contributions have also been made to early planning and design of the Olympics Park-Lower Lee Valley regeneration, a vision for the future of Victoria Embankment and adjacent open spaces, other policy development, and on relevant major planning applications referred to the Mayor. The aim has been not just to reduce noise and protect quiet areas, but to identify and enhance features of positive soundscape quality, such as through re-creation of wetland habitat in the Lower Lee Valley. 5. Questions, scrutiny and correspondence The Mayor is subject to scrutiny and questions from the London Assembly, and receives a large amount of correspondence from Londoners. These need to be dealt with promptly and accurately. Advice on issues relating to noise is provided whenever required on a wide range of issues such as aircraft noise, particularly at night, where the Mayor supports a ban. Other issues include advertising helicopters, car stereos, and fireworks. Contributions were made to a ‘Helicopter Noise in London’ Investigation by the Environment Committee of the London Assembly. Evidence was gathered from boroughs, aviation bodies, other stakeholders and the general public. A public hearing took place in July 2006, and the Committee’s report was published on 16 October. 6. Joint working Regular dialogue has been maintained with the Department for Environment, Food and Rural Affairs, the Government Office for London, the Association of London Government, London boroughs, and other stakeholders to progress implementation of Ambient Noise Strategy. The case for new funding support continues to be put to central government. Initially, this has been aimed at securing support for monitored pilot projects which can contribute to development of national noise strategy. Funding issues will need to be further pursued in the context of the government’s recent decision to commission noise mapping and action planning centrally. Contributions have been made to the development of European and national noise policy, such as through membership of the European Commission Expert Working Group on Assessment of Environmental Noise, a working party authoring Institute of Environmental Management and Assessment guidelines on preparing the noise element of Environmental Impact Assessments, the Ambient and Neighbourhood Noise Committees of the National Society for Clean Air, and an expert group advising on new national planning guidance. Presentations have also been made at key seminars and conferences, such as at an Engineering and Physical Sciences Research Council Noise Futures workshop in January 2006, and a SILENCE project conference in Brussels in March 2006. The GLA continues to actively promote Londonwide working by local authorities on noise. GLA Noise Team officers participate in the work of the Local Authorities Rail Impact Forum, the Air Noise Working Group, the London Pollution Study Group, and liaise with the Association of London Government. A special meeting took place at City Hall on 8 April 2005 to assist boroughs in considering central government proposals for implementing the Environmental Noise Directive 2002/49/EC2. There was substantial support for a phased approach with central government’s initial technical analysis being 9
followed by second stage action to embed noise management in regional and local transport, planning and environmental protection. Potential partners reaffirmed that they wished to see allocation of key responsibilities among the various parties clarified before formal partnership arrangements could be properly considered. 7. Consistency with other strategies, and cross-cutting themes There are, of course, many linkages between the Ambient Noise Strategy and the Mayor’s other strategies and policies. Inputs continue to be made to other strategies and policy documents to ensure consistency, and to promote shared opportunities wherever possible. One examples was input on climate change and urban heat island work, where issues include more outdoor living, more open windows especially on hot summer nights, and more noise from cooling systems, if sustainable solutions are not secured. Input has been made on development of supplementary planning guidance on sustainable design and construction, including promoting passive cooling systems. Contributions have also been made to sub-regional development frameworks, development of best practice on the evening and night-time economy and review of the London Plan. Achieving a balance between environmental and other needs is an ongoing part of implementing Ambient Noise Strategy. The timing, amount and nature of such work is, of course, dependent on how policies, programmes and projects are brought forward in other areas. The adopted Ambient Noise Strategy identifies the main linkages with other Mayoral Strategies. The major themes are considered below. Transport Strategy is the most significant linkage. Transport in one form or another is physically the most widespread source of ambient noise. Implementing progressive noise reduction will depend on overall shifts towards more sustainable transport patterns, as well as on integrating noise management into transport policies, programmes and projects which are initiated for other purposes. The London Plan, and its implementation through development frameworks and other documents, planning referrals, and advice and guidance, is also highly significant. Noise and soundscapes need to be integrated in wider spatial planning, in terms of the location of activities, as well as in ‘sound-conscious urban design’. Shifts to more sustainable design and construction offer significant opportunities to help reduce noise, but in some cases, new challenges requiring innovative acoustic design. Improvements to vehicle fleets and many other Air Quality Strategy measures offer the potential to secure noise benefits. Links with Energy Strategy are important, where improving thermal insulation can also offer opportunities to improve acoustic insulation, and where noise needs to be properly considered in developing energy efficiency and renewable energy, such as wind turbines. Links with work on biodiversity, open space and public realm regeneration will be important in securing more sustainable soundscapes. The Mayor must have regard to the effect of his strategies on the health of Londoners, on sustainable development, and on promoting equality of opportunity for all people. Health and wellbeing are basic drivers for better noise management. Noise is a sustainable development issue because its effects on health, quality of life and the urban environment can accumulate.
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8. Equalities implications The Mayor’s Ambient Noise Strategy is designed to promote equality, equal opportunities and improved relations. Discussion of equalities issues is focused at paragraphs 3.10 to 3.29 of the full strategy document3, but equalities issues have informed drafting of and consultation on the strategy as a whole, e.g. paragraph 5.30 on training and staffing, which refers to the potential of targeted bursaries to encourage take-up of relevant training by groups under-represented in the smaller environment-related professions. The strategy draws out areas where noise reduction benefits could be greater. It also refers to the need for future funding to take account of where the costs of securing benefits may be greater. Evidence suggests that all groups can be adversely affected by noise. The strategy draws out likely differences in exposure and/or vulnerability, such as for groups who may spend more time in the home, or people with a visual or hearing impairment. It sets out ways in which understanding of differences will need to be improved, as an integral part of developing national and international policy on noise. It identifies specific groups that could benefit particularly (e.g. people with a visual impairment, children learning, older people) and areas where costs of improvement could be higher. 9. Risk management The GLA has systems to manage risks in implementing its policies. The Mayor’s overall objectives for ambient noise have been considered in this framework and actions identified to manage the significant risks identified. Given that the implementation of noise strategy must be largely through action by others, the main risks identified relate to actions needing resources for implementation and the overall role in action on noise given to the GLA and boroughs in national noise strategy. The single most significant risk is in the difficulty of securing sufficient funding for noise action. Within the current framework set by central government, this will need to be resolved through the forthcoming national noise strategy, and nationally commissioned noise action planning. 10. Looking to the future Resources will be needed for exemplary pilot projects to build evidence on costs, benefits and wider implications. The Mayor will further investigate and promote action to improve soundscapes15. Within the current system, central government action is vital to ensure that adequate resources are available. The approach taken in the Mayor’s Ambient Noise Strategy has secured widespread support, and should help prepare the way for national noise strategy, and fulfilling duties under the Environmental Noise Directive 2002/49/EC. Tackling noise will require sustained action by many stakeholders. These continue, however, to be creative times for those concerned with helping to build a better sounding city.
During 2005, London Development Agency Board Member Charles Secrett recommended, as part of a review of GLA environmental work, a set of Mayor’s Sustainable Development Awards; potential for a Mayor’s Sound Award will be considered in this context.
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