The Mayor's Ambient Noise Strategy - Greater London Authority

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The Mayor’s Ambient Noise Strategy Mayor of London 11 ■ ■ ■ ■ ■ Mental health - ambient noise is not thought to be a primary cause, though it is possible that it may be an accelerating or intensifying factor. Further research could help to identify if particular groups are more at risk. Work performance - evidence suggests background noise can increase performance in routine work, but impair performance in tasks requiring use of longer term memory and concentration. Background levels in many modern offices, for example, tend to be higher than in the past. Improving conditions for workers needs to address internal noise sources as well as ambient noise. Learning - there has been concern that on-going exposure to ambient noise during childhood can impair reading and language acquisition, reduce motivation, and particularly affect more complex tasks. Studies include Evans et al, 1995 10 and 1998 11 , Haines et al, 2001 12 , and Shield B and Dockrell J, 2002. 13 Studies are continuing. A current international study includes schools in West London. 14 Many schools are affected not only by ambient noise from roads, railways and aircraft, but by high levels of noise interference between one learning activity and others. Social behaviour - Studies 5,15 suggest that noise can encourage people to become more withdrawn, and less helpful to neighbours. It is unlikely that noise itself causes actual aggression, but noisy environments can make people feel less safe, or may actually be less safe if, for example, people are less able to hear a potential attacker approaching. Erosion of tranquillity - Government consultation on national ambient noise strategy focused on rural tranquillity, such as highlighted by the Council for the Protection of Rural England. 16 Within London, concern has been expressed at the erosion of tranquillity in many of London’s open spaces. 17 Even within busy, high density areas, havens of tranquillity can often be found in courtyards and other enclosed spaces, as well as in formal public open space. It is difficult to put a value on the importance of such spaces for respite and recuperation in busy urban areas. Changes in noise 2.10 Acknowledging the shortcomings in data available, analysis 18 suggested that noise environments across Europe were likely, without ambitious noise abatement policies, to remain unsatisfactory or even deteriorate. This would be due to: ■ ■ Increases in the number and power of noise sources, and the increasing use made of them (especially in transport); Geographical dispersion of noise sources, including urban development, new transport facilities, spread of leisure and tourist activity;
12 Mayor of London The Mayor’s Ambient Noise Strategy ■ Spread of noise over time, especially early in the morning, in the evenings, at night and at weekends. 2.11 European environmental noise policy has so far focused on reducing noise at source, fixing maximum sound levels for road vehicles, aircraft and other machines, linked to certification procedures to ensure that new vehicles and equipment comply with noise limits laid down in directives at the time of manufacture. 19 2.12 However, reductions in certified road vehicle noise do not appear to have reduced general noise levels across urban areas (see paragraph 4A.8 on issues related to certification testing). European standards have been lacking for some sources such as railways. There has been concern that a reactive policy towards individual noise sources has led to the phenomenon of ‘creeping ambient’ (see glossary). A new noise source, or an increase in the noise intensity of an existing activity, might not make a readily perceptible contribution to noise levels in areas which are already, at least to some extent, ‘noisy’ - where one noise would tend to be masked by another. However, an accumulation of such additional noise may, over time, lead to a deterioration. Information on noise in London 2.13 Consistent and representative London-wide data on noise exposure is not yet available. The Government’s proposals as part of National Ambient Noise Strategy will provide a measure of population exposure to long term ‘averaged’ noise from roads, railways, aircraft and industry. This has its limitations - the wrong sort of traffic hump, or badly-reinstated roadworks can be as annoying as the overall level of ‘averaged’ noise. Attitude surveys and noise measurement within a sample of areas can help build a fuller picture. 2.14 Attitude surveys have commonly found that, in response to general questions about priorities or concerns, noise tends to be mentioned spontaneously by relatively few people, compared with issues like crime. This is reflected in MORI polling of Londoners for the GLA (see Box 9). However, when specifically asked about noise, higher proportions typically report annoyance.
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