NOISE ABATEMENT
PROGRAM
ENVIRONMENTAL PROTECTION AGENCY • WASHINGTON, D.C.
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EPA's Noise Abatement Program, by Dr.Alvin F.Meyer,Jr.,
Acting Director, Office of Noise Abatement and Control,
Environmental Protection Agency, Washington, D.C. Pre-
sented at the Second National Meeting of the National
Organization to Insure a Sound-Controlled Environment,
May 19, 1971.
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Noise differs from most other environmental
pollutants in one very important aspect—the know-
ledge and technology exists now to control almost
every indoor or outdoor noise problem. As a matter
of fact, this is one instance where the knowledge
of control techniques exceeds the knowledge about
effects on human life as well as the environment.
Yet, the typical American citizen is constantly
bombarded with noise—on the job, in his home, and
at play. In secluded vacation retreats, the roar of
mini-bikes and snow-mobiles and the sounds from
transistor1 radios intrude upon what once was magnifi-
cant silence. And, in urban areas where 75 percent
of the nation's population is located, the general din
and hum of construction projects, the roar of air and
surface transportation, and industrial noise, are
practically ceaseless.
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The over-all loudness of environmental noise has
been doubling every ten years in pace with social and
industrial growth, and, if allowed to continue unchecked,
the cost of alleviating it in the future may be insurmount-
able. In the case of cities where, according to some
estimates, noise levels may be rising one decibel each
year, some observers fear that maybe (given such a con-
tinued rate of increase) people who dwell in the noisest
sections will be deaf in the year 2000. Already, heavy
city traffic measures 90 decibels (on the A scale), five
above the level which can damage hearing capacity after
prolonged exposure. When the noise from transportation-
related construction—which in the case of the subway
being built in Washington, D. C. runs in the 90-95
decibel level—is added, it is obvious that any rate of
increase cannot be tolerated.
While transportation, construction, and industry
are important contributors to- environmental noise, air
conditioners, lawn mowers, and other items in the wide
variety of power equipment now in common use also add to
the problem. In fact, noise levels in apartments and
private dwellings, particularly in kitchen areas, are
beginning to approach those in factories. The situation
is further complicated by construction practices which
allow noise from the outside and from neighbors to in-
trude into our apartments and homes.
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Many European cities have long ago established standards
for sound transmission in apartment buildings and offices and
for permitted noise levels in the streets. While some govern-
mental authorities in this country have managed to enact noise
control ordinances, they vary widely, ranging from overly
restrictive and impractical to completely ineffectual. More-
over, these ordinances are difficult to enforce because of
economic, social, or political considerations as well as the
problems associated with detection and proof of violation.
More flexible building codes could also help cut down
noise. Plastic plumbing pipes are quieter and cheaper than
lead or copper pipes, but they are seldom used. Sound-
absorbing, vibration-damping-matenals can be used to curtail
the noise of motors and engines.
Power generators can be quieted with baffles, exhaust
silencers, and sound-absorbing materials. Just as automobile
tires can be made with quieter treads, similarly noise
control can be built into the design phase of other equip-
ment and machinery. For example, one manufacturer has
developed a garbage truck which is claimed to be 60 percent
quieter than those in common use, and the additional cost is
only $100 more per unit.
The State and local governments are not to blame
for the current problems by any means. As recently as 1968,
the Federal Government's total expenditures for all of
noise control were approximately $11 million. Of these
funds, more than 90 percent were spent for research
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on aircraft noise. The small amount that was left was
expected to take care of research on health effects,
acoustics and noise control in buildings, and other things
such as effects on animals and archeological structures.
Since then there has been action in several areas.
In May 1969, the first Federal standards for occupational
exposure to noise were issued, and five months later the
first of a series of noise standards regulating aircraft
noise were sent forth.
By 1970, Federal expenditures for noise-related
programs had been increased 300 percent. However, 90
percent of these funds still were devoted to aircraft
noise and sonic boom, leaving activities in noise research
and control, including health effects, at a relatively
minor level.
In an effort to correct this imbalance, the Clear
Air Act of 1970 which President Nixon signed into law on
December 31, 1970, called for the establishment of an
Office of Noise Abatement and Control in the Environmental
Protection Agency. The role of our office is to identify
and classify causes and sources of noise and determine their
effects on public health and welfare.
The law also calls for studies on effects of noise
on people, wildlife, and property; effects of sporadic
and intermittent noises; expected growth of noise problems
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through the year 2000 AD; and such other data as is
deemed appropriate. A special report to the Congress,
which is due not later than the first of January 1971.
must also be prepared. This report will include informa-
tion on present Federal research and operational programs
relating to noise control; on State and local laws,
regulations, and enforcement capabilities; and on the
state-of-the-art of noise control technology. Recommenda-
tions about a long-range noise control and abatement
program will also be included.
The law also requires that all Federal agencies
involved in projects generating noise, which are a
public nuisance or otherwise objectionable, to consult
with EPA before filing their environmental impace state-
ment to determine possible means of abating the noise.
Already these statements are being reviewed.
The considerable effort going into preparing our
report to Congress well may seem to those familiar with
the wealth of published reports and other presentations
of data on this subject as "re-inventing the wheel."
It is hoped that this can be avoided. Present plans
envision a report which will provide an overview of
those areas for which there is up-to-date published in-
formation, readily available in the public
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domain, and concentrate on those which will assist the
decisionmakers in the Executive and Legislative Branches
of the Federal Government in assessing needed action and
recommended programs. This report hopefully will also
be of help to State and local governments, to industry,
and the general public.
Because the Noise Office was established less than a
month ago, it is obvious that the schedule is very tight.
One source of help the office has turned to is the National
Bureau of Standards, which has outstanding expertise in
the noise field. Contracts are also being negotiated
with a number of universities and research organizations
to give some of the other information needed.
In very broad terms, these are the directions the
program is taking right now. There will be:
— Heavy emphasis on the analysis of the causes
and effects of noise pollution.
— Analysis of the ecological implications of noise
pollution, paying particular attention to the
effects on wildlife.
— Compilation and analysis of national, State, and
municipal laws, regulations, and ordinances.
— Study to identify the various criteria which must
be taken into account in standards setting.
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— And, analysis of the economic ramifications
of noise; i.e., costs to the consumer, insurance
costs, etc.
To get a better feeling of what local citizens and
officials feel about the problem, a series of hearings
and demonstrations to be held in various sections of the
country this summer are being planned. These will be
open hearings to which the public will be invited and
encouraged to participate to the greatest degree possible.
Some of this may sound like the usual government way
of doing business which so many people have become dis-
enchanted with and, if the office had been in business
for a number of years, it might be a legitimate criticism.
But it is realized that the office is literally starting
from scratch, and if it is going to develop an effective
organization (as EPA certainly plans to do) there are
simply some facts that must be obtained to make intelligent
decisions.
This is particularly true in view of the responsi-
bilities that would be given EPA under President Nixon's
proposed 1971 Noise Control Act. Under this new legislation
EPA would be responsible for the coordination of all Federal
programs in noise research and control; development of
criteria to protect public health and welfare; setting
standards for such products as construction and transporta-
tion equipment; product labeling; research on noise effects;
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development of measurement and control techniques; and
technical assistance to the States.
There is little doubt that the recognition of the
noise problem in America has arrived late. But now it
is a matter of growing public concern, and its allevia-
tion frequently will require actions that transcend
political boundaries, be they local or State. Like air
pollution, noise affects large numbers of people who
have little choice in deciding whether or not they are
willing to expose themselves to it. Congress is aware
of this public concern and is expected to pass new
legislation this session.
It must be remembered, though, that noise is a
typical pollutant in that usually it is a by-product
of some desirable activity and can only be avoided at
some cost, either by control at the source or by exclu-
sion from specific locations. Nevertheless, the ultimate
goal should be the achievement of a desirable environment
in which noise levels do not interfere with man's health
and well-being or adversely affect other values which
he regards highly.
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HIGHLIGHTS OF THE PRESIDENT'S PROPOSED 1971 NOISE CONTROL ACT
(S.1016)
If enacted,
Federal Programs - the Administrator of the Environmental
Protection Agency would have responsibility for coordinating
all Federal programs in noise research and control.
Criteria - the EPA Administrator would have authority
for the development of any noise criteria necessary to
protect public health and welfare.
Standards - the EPA Administrator would have authority to
set or amend standards limiting the noise-generating
characteristics of new construction, transportation
(including recreational vehicles and related equipment),
and other equipment powered by internal combustion
engines. Both domestic and foreign products would be
covered.
Products manufactured after the establishment of
these standards and failing tri meet them would be pro-
hibited from sale in inter-State commerce.
These products would be prohibited from use in
inter-State commerce.
Removal or making inoperative of noise control
equipment on these products would also be prohibited.
States may not establish more restrictive require-
ments, but may issue regulations limiting use.
Aircraft Noise - the EPA Administrator would review and
have responsibility for approval of Federal Aviation
Administration standards for the -measurement of aircraft
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noise as veil as regulations for aircraft noise control
and abatement.
The FAA Administrator would not be able to issue
a type-certificate for any aircraft, engine, propeller,
or appliance that significantly affects its noise
characteristics unless he had previously developed per-
formance standards.
If the EPA Administrator believed existing aircraft
noise standards to be inadequate, he might request the
FAA to review them and report on the advisability of
revision.
Labeling - the EPA Administrator may require a notice of
levels of noise generation attached to products producing
harmful noise or a notice of effectiveness for products
sold on the basis of their ability to reduce noise.
Both domestic and foreign products would be covered, and
the removal of these notices prohibited. States may not
adopt more restrictive requirements, but may establish
regulations limiting conditions of use.
Enforcement - any person who violated the manufacturing
standards or the labeling requirements may be fined up
to $25,000 for each violation.
Other - research on noise effects, development of measure-
ment and control techniques; and technical assistance to
State and local governments also would be authorized.
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?rom P. L. 91-604, the "Clean Air Act."
"TITLE IV—NOISE POLLUTION
"Sec. 401. This title may be cited as the 'Noise Pollution
and Abatement Act of 1970'.
"Sec 402. (a) The Administrator shall establish within the
Environmental Protection Agency an Office of Noise Abatement and
Control, and shall carry out through such Office a full and com-
plete investigation and study of noise and its effect on the
public health and welfare in order to (1) identify and classify
causes and sources of noise, and (2) determine—
"(A) effects at various levels;
"(B) projected growth of noise levels in urban areas
through the year 2000;
"(C) the psychological and physiological effect on
humans;
"(D) effects of sporadic extreme noise (such as jet
noise near airports) as compared with constant noise;
"(E) effect on wildlife and property (including values);
."(F) effect of sonic booms on property (including
values); and
"(G) such other matters as may be of interest in the
public welfare.
"(b) In conducting such investigation, the Administrator
shall hold public hearings, conduct research, experiments,
demonstrations, and studies. The Administrator shall report
the results of such investigation and study, together with
his recommendations for legislation or other action, to the
President and the Congress not later than one year after the
date of enactment of this title.
"(c) In any case where any Federal department or agency is
carrying out or sponsoring any activity resulting in noise which
the Administrator determines amounts to a public nuisance or is
otherwise objectionable, such department or agency shall consult
with the Administrator to determine possible means of abating
such noise.
"Sec. 403. There is authorized to be appropriated such amount,
not to exceed $30,000,000 as may be necessary for the purpose of
this title."
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