Ruth Haines
Aircraft noise is a concern for many communities in the US, with airports being the first point of contact for local noise concerns. The Federal Aviation Administration (FAA) assesses how airplane noise affects communities and works to address these concerns through initiatives such as the Continuous Lower Energy, Emissions, and Noise (CLEEN) program, which identifies technologies that reduce noise, fuel burn, and emissions. Despite technological advances leading to quieter airplanes, aircraft noise remains a problem, with the implementation of performance-based navigation (PBN) potentially concentrating aircraft noise over smaller areas. The FAA uses the Day-Night Average Sound Level (DNL) metric to assess the noise levels at various locations surrounding airports, but this metric has been criticized for not providing a clear picture of flight activity or noise levels. The FAA is taking steps to improve community engagement and information sharing, and collaborates with various stakeholders to reduce noise in ways within their purview.
| Characteristics | Values |
|---|---|
| Aircraft Noise Causes | Disrupted sleep, health issues, community objections to airport operations and growth |
| Concerned Parties | FAA, air carriers, airports, aircraft manufacturers, research universities, other stakeholders, industry partners, local communities, and elected officials |
| FAA's Responsibilities | Balance the growing demand for aviation capacity against the effects of aircraft noise on the environment and communities |
| FAA's Efforts | Ensure aircraft meet federal noise standards, assess potential noise effects of proposed flight path changes, conduct community outreach |
| FAA's Implementation | Performance-based navigation (PBN) to allow aircraft to fly more precise flight paths to reduce flying time, fuel use, and emissions |
| FAA's Challenges | Community forums were frustrated and unclear on how to engage with FAA productively to address noise concerns |
| FAA's Recommendations | Identify additional metrics for assessing noise impacts, incorporate tools to clearly convey expected impacts, improve guidance for community engagement |
| Aircraft Noise Management | Airport Noise and Operations Monitoring System (ANOMS) with fixed noise monitors, High Range Noise Event (HRNE) Program to measure and monitor loud aircraft noise events |
| Airport Noise Studies | Cohen et al. (1980) – higher blood pressure in children near LA airport; Evans et al. (1995) – link between chronic noise exposure and elevated health measures for children near Munich airport |
| Airport Noise Reduction Efforts | Aircraft Noise and Capacity Act of 1990 (ANCA) mandated phasing out of louder aircraft, encouraging use of quieter turbo-fan jet engines |
| Airport Noise Contours | FAA determined land inside 65 DNL or higher is incompatible for residential use, with contour maps created for airports like Westchester County Airport |
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What You'll Learn
Day-Night Average Sound Level (DNL) metric
The Day-Night Average Sound Level (DNL) is a noise metric used to reflect a person's cumulative exposure to sound over a 24-hour period. It is calculated by measuring the average noise level over a 24-hour period, with noise level measurements between 10 pm and 7 am artificially increased by 10 dB before averaging. This weighting is used to account for the decrease in community background noise of 10 dB during this period. The DNL provides a simple and uniform way to describe the effects of environmental noise and is the standard noise metric used by the FAA for all studies of aviation noise exposure in airport communities.
The DNL metric is used by the FAA to meet legal requirements in assessing how changes in flight paths might affect noise levels at various locations surrounding airports. It takes into account both the amount of noise from each aircraft operation and the total number of operations flying throughout the day. By considering the cumulative exposure to sound over a full day, the DNL metric provides a more comprehensive understanding of the noise environment in airport communities.
The DNL noise metric is similar to the day-evening-night average sound level (Lden or DENL) used in other countries and the community noise exposure level (CNEL) used in California legislation. The CNEL is the DNL with the addition of an evening period from 7 pm to 10 pm when noise level measurements are boosted by 5 dB to account for the decrease in background community noise during this period. These different metrics allow for a more nuanced understanding of noise exposure in different communities and help inform decisions regarding airport noise management.
While the DNL metric is a useful tool for assessing and managing noise exposure in airport communities, it is important to recognize that noise is a subjective experience. Some sounds, like a distant train whistle, may be considered pleasant by some individuals while being considered noise by others. Additionally, the same sound can become more or less tolerable depending on its volume. Therefore, it is essential to consider the subjective component of noise perception in conjunction with objective measurements like the DNL metric to effectively address community concerns about aircraft noise.
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Performance-based navigation (PBN)
However, PBN has faced opposition from communities in the US and Europe due to the concentration of aircraft noise over a smaller area. The introduction of highly concentrated routes has led to outrage, opposition, and protest from affected communities. For example, communities around Heathrow and Gatwick airports in the UK suffered from the introduction of PBN, with many areas around Heathrow experiencing trials in 2014. These trials were stopped early due to mass protests, and legal action was taken against the CAA by communities around Gatwick, resulting in an out-of-court settlement.
The Teddington Action Group, an action group for residents in Teddington and surrounding areas against flight noise from Heathrow, has raised concerns about the lack of consultation and proper consideration of the implications of PBN. They highlight the practical, technical, and acoustic limitations of PBN, including the number of alternative flight paths that can be accommodated and the physical separation between routes needed to deliver effective noise relief. The group also emphasizes the unknown medical implications of living under concentrated flight paths, as noise is a serious health issue.
The FAA has been working to address noise concerns related to PBN implementation by ensuring that aircraft meet federal noise standards, assessing the potential noise effects of proposed flight path changes, and conducting community outreach. However, the Government Accountability Office (GAO) has recommended that the FAA improve its efforts to address community concerns, including identifying additional metrics for assessing the noise impacts of new flight paths and improving guidance for communities on effectively engaging with the FAA.
Overall, while PBN has benefits for the aviation industry, it has also faced opposition and raised concerns about its impact on communities living near airports.
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Community engagement and information sharing
The Federal Aviation Administration (FAA) plays a central role in community engagement and noise reduction efforts. The FAA works with air carriers, airports, aircraft manufacturers, research universities, industry partners, local communities, and elected officials to address noise concerns. They have implemented initiatives like the Noise Complaint Initiative (NCI) to understand specific challenges and propose solutions. Additionally, the FAA utilizes the Day-Night Average Sound Level (DNL) metric to assess the impact of flight paths on noise levels, ensuring compliance with federal noise standards.
Airport authorities also actively engage with communities and stakeholders through various channels. They conduct long-range planning, host airport events, and organize educational programs to raise awareness about noise issues. For instance, the Metropolitan Airports Commission (MAC) has established airport advisory commissions, which include appointed airport users and community representatives, to discuss aircraft operations and noise concerns. MAC also offers a 24-hour hotline and an interactive FlightTracker tool for community members to share concerns and track flight activity.
Case studies from Europe provide valuable insights into effective community engagement practices. The Vienna Dialogue Forum, for instance, has successfully facilitated collaboration between stakeholders and the implementation of noise-reducing operational procedures at Vienna Airport. Similarly, London Heathrow Airport implemented a steeper departure profile to reduce noise impact over Teddington, demonstrating the positive outcomes of community-proposed initiatives.
To further enhance community engagement and information sharing, the Government Accountability Office (GAO) has made several recommendations. These include identifying additional metrics for assessing noise impacts, incorporating visualization tools for better communication, and improving guidance for communities on engaging with the FAA. By implementing these suggestions, airports can improve their noise management strategies and foster a more positive relationship with surrounding communities.
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Noise abatement procedures
Metropolitan Airports Commission (MAC)
The MAC, which oversees several airports, employs a comprehensive approach to noise abatement. They engage with communities through airport advisory commissions, long-range planning, and educational programs. The MAC's Noise Oversight Committee (NOC) plays a pivotal role in bringing together industry representatives and the community to address noise concerns and provide policy recommendations. The MAC also utilizes the MACNOMS system for data collection, analysis, and community engagement. Additionally, they have implemented the Fly Neighborly program, which promotes awareness of the sensitivity of aircraft noise among airport neighbors.
Federal Aviation Administration (FAA)
The FAA recognizes the importance of collaboration in addressing noise issues. They work closely with various entities, including air carriers, airports, aircraft manufacturers, research universities, local communities, and elected officials. The FAA strives to reduce noise by conducting research, assessing the potential noise impact of flight path changes, and engaging in community outreach. They use the Day-Night Average Sound Level (DNL) metric to assess noise levels around airports. The FAA also ensures that aircraft meet federal noise standards, such as the Stage 4 noise standards for jet aircraft manufactured after January 1, 2006.
Westchester County Airport
Westchester County Airport has implemented a Voluntary Restraint From Flying (VRFF) Program, encouraging operators to avoid flying between midnight and 6:30 a.m. daily. While a mandatory curfew was imposed by the Westchester County Board of Legislators in 1981, it was overturned in a federal court case. The Airport Noise and Capacity Act of 1990 (ANCA) further complicated the imposition of curfews or use restrictions by airport operators. Additionally, the airport utilizes an Airport Noise and Operations Monitoring System (ANOMS) with 22 fixed noise monitors to identify and address loud aircraft noise events.
Performance-Based Navigation (PBN)
The FAA's implementation of PBN has been a subject of community concern. While PBN aims to reduce flying time, fuel use, and emissions by allowing more precise flight paths, it may also concentrate aircraft noise over smaller areas. The FAA conducts community outreach to address these concerns and uses the DNL metric to assess noise impacts. However, GAO has recommended improvements, including identifying additional metrics and providing clearer guidance to communities on engaging with the FAA.
Community Engagement and Research
Addressing noise issues requires ongoing dialogue and collaboration with affected communities. Various programs and forums have been established to facilitate community engagement, such as the MAC's FlightTracker tool and the NOC's quarterly Listening Sessions. Research on the health impacts of aircraft noise is also crucial, with studies linking noise exposure to cardiovascular issues, learning deficits, and mental and physical health impacts.
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CLEEN program
Aviation noise can be a concern for communities near airports. Aircraft noise can expose residents to negative effects such as disrupted sleep and health issues. The Federal Aviation Administration (FAA) has a responsibility to balance the demand for aviation against the effects of aircraft noise on the environment and communities.
The FAA has developed the Continuous Lower Energy, Emissions, and Noise (CLEEN) Program to identify technologies that will reduce noise, emissions, and fuel burn. The CLEEN program is part of several initiatives that have helped reduce the number of people exposed to significant aviation noise. The first phase of CLEEN is estimated to have resulted in a 14% decrease in the land area exposed to noise.
In 2021, the FAA initiated the third phase of CLEEN with over $100 million in funding and a target for community noise exposure. The CLEEN program is part of the FAA's efforts to address noise concerns by ensuring that aircraft meet federal noise standards, assessing potential noise effects of proposed flight path changes, and conducting community outreach on the potential noise impacts of such changes.
The FAA also works with communities to eliminate or mitigate incompatible land use near airports and provides federal funds to mitigate the adverse impacts of aircraft noise in homes and schools near airports. The FAA has provided over $10 billion to more than 250 airports to implement changes in support of local land use planning and zoning, sound insulation, acquisition of noise-sensitive property, aircraft noise abatement routes and procedures, and other measures. The FAA also encourages participation by providing financial and technical assistance to airports to develop noise exposure maps and noise compatibility programs.
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Frequently asked questions
The FAA is working to address noise concerns by ensuring that aircraft meet federal noise standards, assessing potential noise effects of proposed flight path changes, and conducting community outreach. The FAA also collaborates with air carriers, airports, aircraft manufacturers, research universities, other stakeholders, industry partners, local communities, and elected officials to reduce noise.
Many US airports have noise issues, including Los Angeles International Airport, Munich International Airport, and Westchester County Airport.
Aircraft noise can cause disrupted sleep and health issues for residents living near airports. Studies have also linked exposure to aircraft noise with deficits in learning and elevated neuroendocrine and cardiovascular measures in children.
No, a fine cannot be levied on an aircraft operator for the amount of noise an aircraft makes. However, noise monitors are placed around airports to measure and monitor loud aircraft noise events in surrounding communities.
