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5 Aligning Noise Action Planning
5.1 Planning and Noise
The relationship between the planning system and noise was highlighted in Section 1.2. Planning and Advice Note 56 ( PAN 56), builds on principles set out in SODD Circular 101/1999 Planning and Noise.
In broad general terms, PAN 56 provides the following advice:
- How noise issues should be handled in development plans and development management.
- Ways of mitigating the adverse impact of noise.
- Specific guidance on noisy and noise-sensitive development.
- Guidance on the use of planning conditions relating to noise.
The transposition of the END into the Environmental Noise (Scotland) Regulations 2006 alters the backdrop on which noise should be considered in terms of planning. NMAs may be shown in development plans, however the strategic nature of the published noise contour maps and their potential use for land use planning must be clarified in any future planning guidance. As noted earlier in Section 2.3 it is important to appreciate the contour maps illustrate average noise levels, for an average day, in the year of calculation, on the basis of a 10m grid, at a height of 4m above ground level, and therefore cannot be used to determine noise levels for any specific property. It would not, consequently, be appropriate to use the noise contours to categorise any site at ground floor level in terms of the Noise Exposure Categories given in PAN 56.
5.2 Aligning with Policy
The Scottish Government and other organisations responsible for delivering transportation in Scotland have developed a range of policy and strategy documents with direct or cross cutting impact on transportation noise. There is also a range of international initiatives providing direction to the strategy of noise reduction. It is important the Transportation Noise Action Plan is delivered in a joined up way that takes account of these other policies, to optimise outcomes. Relevant policy initiatives are highlighted in this section and some current technical and research developments are presented in Section 5.3.
At a national level, Scotland's National Transport Staregy, published in December 2006 by the Scottish Government, recognises transport provides a significant and positive contribution to economic growth, and to the prosperity and quality of life of Scottish people. The document built on the background of a range of documents including Scotland's Transport Future - Transport White Paper 2004 and Choosing our future: Scotland's sustainable develoment strategy, and recognised a need to work in partnership with local authorities, regional transport partnerships and transport operators to achieve the objectives.
The document recognised three key issues that will make a fundamental difference towards delivering a world class public transport system. These are as follows.
- Improved journey times and connections - making it quicker, easier, and more reliable for passengers to travel between our towns and cities and across our global markets.
- Reduced emissions - making sure that Scotland takes a lead in the future of sustainable transport.
- Improved quality, accessibility, and affordability - ensuring everyone across Scotland has high quality public transport choices.
The document also recognised transport users do not pay the full costs they impose on society in terms of emissions, noise and air quality, and committed to working closely with the UK Government on this issue.
This key document, setting the context for transport policy making and informing decision making for the next 20 years for the Scottish Government and key partners, has provided direction to a series of related policies and strategies.
Transport Scotland has begun the Strategic Transport Projects Review ( STPR), a nationwide study for Scotland, which will recommend a programme of interventions for implementation between 2012 and 2022. The STPR will focus on identifying those interventions that most effectively contribute towards the Government's Purpose of promoting sustainable economic growth. Work on the STPR started in summer 2006 and the study will report to Ministers later in 2008. The STPR will make recommendations on a portfolio of land-based transport interventions to be taken forward between 2012 and 2022. This will establish the basis for the ongoing development of Scotland's transport infrastructure to meet the demands of the 21st Century. Strategic Environmental Assessment, including assessment of the potential for transport noise emissions, will be a significant component of this review.
To provide clarity on nationally significant transport priorities two major elements of the Strategic Projects Review, the Forth Replacement Crossing and the Edinburgh Glasgow Rail Improvements Study, have been fast tracked. The Edinburgh Glasgow Improvement Project will electrify over 350 track kilometres of railway, covering the core Edinburgh to Glasgow route, the Cumbernauld Line and the Dunblane/Stirling line to Edinburgh and Glasgow. The project will also assess the benefit in electrifying the remainder of the Shotts Line. The benefits of electrification include lower in service noise generated in comparison to diesel train operations.
With regard to trunk road projects, the M74 Completion for example will include low noise road surfacing, where considered appropriate, suitable noise barriers, and appropriate landscaping. With these measures, overall, the indications are that more properties and a larger population would experience decreases in noise levels than increases, and there would be an overall net benefit from the scheme.
In December 2006, Scotland's Railways was published, setting out Scottish Ministers' vision for the rail network over the next 20 years. Scotland's Railways accompanies the National Transport Strategy, showing how rail can contribute to achieving the three strategic outcomes for transport of improving journey times and connections, reducing emissions, and improving quality, accessibility, and affordability. Leading on from this, the High Level Output Specification ( HLOS) is the next step in firming up medium-term requirements, setting out the detail of what Scottish Ministers want the rail industry to deliver between 2009 and 2014 on behalf of Scottish rail passengers and freight users. The HLOS confirmed the Scottish Ministers' aspiration for the rail network include the delivery of services that minimise the impact on the environment and ensure that rail is a real alternative to road and air travel for passenger and freight travel and environmentally superior both within Scotland and for cross-border journeys. The Transportation Noise Action Plan has a clear cross cutting role with this aspiration.
With respect to road networks, the Road Asset Management Plan for Scottish Trunk Roads April 2007 to March 2009 sets out how Transport Scotland currently manages, or intends to manage, the trunk road network and the service this will deliver for road users. In addition the Transport Scotland Development Management Guidance sets out the approach to be adopted by Transport Scotland in regard to their Development Management and Development Plan responsibilities when engaging with the development community in Scotland. This guidance is intended to assist everyone involved in the planning/development process in Scotland but particularly Local Authorities, consultants and major developers.
At a regional level the seven Regional Transport Partnerships have, or are in the process of developing their Regional Transport Strategies. These will address environmental issues including noise.
At a local level, Local Transport Strategies have an important role to play in reducing noise. The strategies will help, for example, secure, or support modal shift to sustainable modes such as walking, cycling, and public transport. This should result in reduced traffic levels, cutting air pollution and traffic noise.
The Transportation Noise Action Plan forms policy, which can be taken account of for the next round of Local and Regional transport strategies, in approximately 3 to 5 years.
5.3 Relevant Current Initiatives
As part of the design of all new trunk road projects, the Design Manual for Roads and Bridges ( DMRB) contains guidance on how to assess and mitigate noise. Revised guidance on the assessment of noise and vibration in DMRB Volume 11 (Environmental Assessment) is expected later in 2008. Further mitigation measures such as the use of low noise road surfacing and noise barriers, where appropriate, will be taken forward as part of new schemes, to reduce the impacts of traffic noise on sensitive receptors. Wherever possible, however, the principle of environmental assessment for new road projects is to ensure that adverse noise and other environmental effects are avoided or reduced as far as possible through good project design.
At a national level Transport Scotland will look to influence technology choices when railway rolling stock replacements are being considered, encouraging increasing use of electric passenger rolling stock and haulage of freight by electrical locomotives where it is both cost effective and feasible. This will assist in delivering lower noise emissions as well as better air quality.
At a European level, Council Directive 96/48/EC on the interoperability of the trans-European high speed rail system and conventional rolling stock (2001/16/EC) specify maximum noise emission from trains. Implementation of these EUTSIs will lead to overall reductions in railway noise impact as the train fleet is renewed.
A significant proportion of the UK freight wagon fleet is fitted with disc brakes or tread brakes made of composite (reins based) materials, rather than cast iron tread brakes. This leads to much smoother wheel running surfaces and a subjective halving of volume. The latest diesel freight locomotives are fitted with composite tread brakes and efficient engine silencing.
In relation to reducing noise from track, rail roughness is routinely measured. The industry is evaluating the benefits of moving to a targeted rail grinding strategy.
Advanced noise control technology, in the form of tuned absorbers on rails is also being developed. The industry will follow the development of tuned absorbers on rails for potential future application.
The UK rail industry is at the forefront of international railway noise and research and maintains close involvement with European developments such as Silent Freight and Silent Track.
At a UK research level the Construction Industry Research and Information Association ( CIRIA) are currently taking forward a Noise and Vibration Issues in Urban Development project. This project will aim to provide practical advice on noise and vibration issues for those involved in undertaking developments next to infrastructure. It will look at how to address these issues and derive practical solutions.
The Department for Transport (DfT) is leading on reserved transport matters for the UK. They are committed to a transport system which balances the needs of the economy, the environment, and society. They have conducted research on the Assessment of the existing and proposed tyre noise limits and an Examination of Vehicle Noise Test Procedures, two areas where a reduction in transport noise could be achieved.
Further discussion on areas of research and development, which may be pursued in support of the Transportation Noise action planning process, are discussed in Appendix 4.
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