Environmental Noise Directive-Strategic Environmental Assessment Environmental Report Consultation

4 Prioritisation Methodology and Matrix

4.1 Need for and Development of Prioritisation Matrix

Whilst noise maps presented in Scottish Noise Mapping presents the information in terms of 5dB noise contours it is a it is a resource intensive process to examine the contour maps to determine where the highest noise levels actually correlated with exposure of residential buildings. Furthermore an examination of the consolidated maps does not reveal sufficient information in relation to where the noise contours result from road, rail aircraft or industrial sources. Article 1 of the END states that " The aim of this Directive shall be to define a common approach intended to avoid, prevent or reduce on a prioritised basis the harmful effects, including annoyance, due to exposure to environmental noise.", and END defines 'environmental noise' as unwanted or harmful outdoor sound created by human activities, including noise emitted by means of transport, road traffic, rail traffic, air traffic, and from sites of industrial activity such as those defined in Annex I to Council Directive 96/61/EC of 24 September 1996 concerning integrated pollution prevention and control. Environmental noise can therefore be split into three main categories; industrial noise, transportation road and rail sources and aircraft noise.

4.2 Industrial Noise

The approach to the calculation of industrial noise was based on the Good Practice Guide. The computational method used is that detailed in ISO 9613-2 Acoustics - Attenuation of Sound During Propagation Outdoors - Part 2: General Method of Calculation (1996). As has been explained in Section 1.2 there are at present adequate provisions in the Scottish legislative framework for the control of noise from industrial sources. In view of this and following consultation with SEPA and the local authorities it was agreed that an industrial source or area would be included in the prioritisation matrix and that any prioritisation of such areas/source would be at the request of the regulatory authority.

4.3 Airports

BAA, the operator of Glasgow Airport is the competent authority under the Environmental Noise (Scotland) Regulations 2006 for the production of the relevant noise maps and Action Plan.

The Airport Action plan addresses the issue of noise from aircraft affecting residents in the agglomeration. It identifies Clydebank, and the Johnstone areas of Renfrewshire, within the agglomeration as higher priority compared to elsewhere. Among the issues raised were concerns about low flying aircraft, aircraft engine testing and requests for noise insulation. However any measures taken to reduce aircraft noise will impact the total area within the noise contours, benefiting a wider audience than any targeted priorities. Therefore Glasgow Airport will adopt a generic approach in aiming to reduce aircraft noise.

In addition the close working relationship developed as part of the Glasgow Action Planning working group, between the Airport operator, Environmental Health officers and Planning Officers within the local Authorities has resulted in mechanisms having been put in place to allow all parties to work together to address noise issues from the airport. It is recommended that these mechanisms be continued and these closer working relationships be continued.

4.4 Development of Prioritisation Matrix

The purpose of the matrix is to establish areas that may require noise intervention or management, and in what order etc and by what process. In line with aim of Article 1 as reproduced in Section 4.1, above, the prioritisation matrix has been developed to evaluate strategic noise levels within the first round noise maps in terms of the road and railway source areas. The purpose of the prioritisation matrix is to evaluate strategic noise levels within the first round noise maps in terms of the road, railway and aircraft source areas most likely to cause annoyance to people potentially affected. The prioritisation will enable appropriate actions required to be determined on the basis of a consideration of noise levels, the number of people potentially affected and the annoyance response to road, railway and aircraft noise. The prioritisation matrix identifies areas where the predicted noise levels are most likely to cause annoyance to people potentially affected. The prioritisation enables appropriate actions required to be determined on the basis of a consideration of noise levels, the number of people potentially affected and the annoyance response to road and railway noise.

The matrix developed is straightforward, transparent, and consistent. Although the matrix provides a focus for action planning, a reality check on the strategic noise levels, all matrix input data and any proposed interventions prior to the implementation of any suggested actions is essential and in fact this reality check will in essence be the first step in the action planning.

The derivation of the Prioritisation Matrix is fully explained in Appendix 2, however in summary the resultant Source Prioritisation Scores ( SPS) take into account the predicted noise contours at each building, the number of people assume to live in each building and the annoyance response relative to the transportation source in question. The SPS for road and rail and based on the roads and railways being segmented into 100m sections whereas for aircraft noise the SPS are based on postcode areas. Each road/rail segment is given a unique ID and for each building with a noise level greater than or equal to L _den 55dB the ID of the road/rail segment that is closest to it is assigned to that building. The logarithmic sum of BPS values (the SPS) for all buildings with the same nearest road/rail segment ID is then assigned to the relevant road segment. .

All the SPSs then require to be prioritised in a manageable list for consideration in the action planning process. Whilst it is clearly desirable to start with the sources areas which have the highest SPS the question of " how high does the SPS have to be before consideration is given in the first round of actions?" arose. Therefore a basic statistical analysis of the SPSs was undertaken and it was found that he top one percent of SPSs (normally distributed) corresponded to the mean SPS plus two standard deviations. Consequently, following a statistical analysis and consultation with END working groups it was decided to indentify the top 3% of road and railway network together with the aircraft postcodes areas in terms of the top three one percent bands with the top one percent being colour coded red, the next one percent colour coded amber, the next one percent colour coded green and the rest colour coded as grey/black.

4.5 Process of Assigning Noise Management Areas

It is important to appreciate that the determination of a CNMA is simply a means of highlighting that a geographical area should be considered further in terms of a potential need for noise management. It does not mean that the area necessarily corresponds to the start and end of any distinct 100m section of road. Using the procedure as detailed in Appendix 2 the top one percent of each of road segments and the top 1% of each of the rail segments within the agglomeration have been identified as CNMAs. Outwith the agglomerations the top one percent of each of the major road and rail segments have been deemed as CNMA's. The identified CNMA's are presented at section 4.6.

4.6 Identification of Problems and Situations That Need to be Improved - Assigning Candidate Noise Management Areas

The initial consultation responses indicated a need for clear guidance on the process of NMA assignation. The SENSG group are to produce detailed Technical Guidance to assist local authorities in the process of assigning candidate and noise management areas.

As a first step in applying the information obtained by mapping the agglomeration, it was decided that in order to select appropriate Candidate Noise Management Areas it would be necessary to introduce a prioritisation methodology. It was recognised that analysing the noise contours alone would not necessarily achieve this. In order to gain a better understanding of what the maps show it is helpful to identify in which parts of the agglomeration high population density come together with high levels of noise. This need for prioritisation resulted in the development of the Source Prioritisation Scores ( SPS) which are described at appendix 2. This prioritisation is seen as making the cost benefit analysis an integral part of the Action Planning process.

Each of these areas will be examined in more detail prior to any decision to promote it as a Noise Management Area ( NMA). Consideration will be given to a number of factors that may affect these candidate areas including, but not necessarily limited to, the following.

An evaluation of data input into the model e.g. traffic volumes, traffic types, road gradient.
The road surface.
The condition of the road surface
Any noise reduction mechanisms already in place and not taken account of in the calculation method e.g. local barriers, acoustic double glazing, single aspect construction.
Building profile.
Traffic calming measures e.g. recently reduced speed limits, speed bumps.
Rail corrugation .

The Candidate Noise Management Areas can be seen on the accompanying maps and are listed below. It should be noted that the areas are deliberately not precisely defined. This is because the manner in which CNMAs have been identified is based upon the strategic noise contours and other data, such as population figures, which is less certain at a local level. Additionally, some data can only be gathered from an on site investigation. Any actions that might be taken, in the event that a CNMA is promoted to a Noise Management area, may extend beyond a specific contour line.

It should also be remembered that these areas are based on strategic noise maps which are an average level. It is anticipated that certain areas will not become Noise Management Areas for various reasons. It was however decided to include all the areas identified at this stage for the sake of completeness and transparency.

During implementation of the Action Plan, a review process will be applied to each CNMA to determine whether it should become a Noise Management Area ( NMA). To support this review process, separate Technical Guidance will be provided. The Technical Guidance will also assist the key organisations and their stakeholders in addressing the technical detail of the Noise Action Planning process.

Regulation 18 of the Environmental Noise (Scotland) Regulations 2006 states inter alia that the competent authority (in this case the Scottish Government) shall ensure that the public is consulted in the preparation and revision of action plans. We are of the view that concluding that an area is a NMA is a revision to the action plan and thus should be consulted upon. If the NMA is based on LA roads we are proposing that the relevant LAs themselves carry out such consultations. Such an approach and any follow up measures within the NMA is envisaged by Regulation 19 of the 2006 Regulations. Transport Scotland would carry out any consultations required for NMAs containing trunk roads. Given this need to consult it is recommended that a group of NMAs is consulted upon at the one time and that the consultation also includes suggestions on the measures to be taken to manage the noise in the NMA. This approach ensures that those involved in delivery of any measures to manage noise lead on the consultation. After the consultation process is complete the Scottish Government would then adopt any required changes to the action plan under Regulation 22 of the 2006 Regulations.

The colour coding of the SPS, the derivation of which is provided in Appendix 2 is the basis of the determination of Candidate Noise Management Area ( CNMA); in essence a red SPS banding equates to a CNMA. The entire process is graphically illustrated at the end of the document included as Appendix 2. A filtering process is then applied to the CNMA to determine whether or not the CNMA translates into a Noise Management Area ( NMA). The filters are as follows:

e.g:

Check on input data - traffic flows etc
Check on presence or absence of barriers (road/rail) within CNMA's
Check on provision of noise insulation measures such as high glazing specifications in new build or conversions within CNMA's
Check on road surface material used in model
Check on condition of rail track (Acoustic Track Quality ( ATQ)

Following the process previously described, 53 Candidate Noise Management Areas ( CNMAs) have been identified within the Glasgow agglomeration. 42 of these are associated with road traffic and 11 with railway noise. All of these lie within the boundary of the Glasgow agglomeration. Each of these areas will be examined in more detail prior to any decision to promote it as a Noise Management Area ( NMA). Consideration will be given to a number of factors that may affect these candidate areas including, but not necessarily limited to, the following.

An evaluation of data input into the model e.g. traffic volumes, traffic types, road gradient.
The road surface.
The condition of the road surface
Any noise reduction mechanisms already in place and not taken account of in the calculation method e.g. local barriers, acoustic double glazing, single aspect construction.
Building profile.
Traffic calming measures e.g. recently reduced speed limits, speed bumps.

The noise maps were used to identify possible locations for Candidate Noise Management Areas. Emphasis was placed on locations which were noted to have the highest scores from noise sources and the highest scores in relation to building exposure.

Representatives of each local authority explored the noise maps and, as a desk top exercise, were able to confirm the probability or otherwise of the maps accurately predicting the correct location for a Noise Management Areas.

Those locations (42 from road noise and 11 from rail) were then visited by representatives of the relevant local authority, and a proforma completed as an initial analysis of CNMA status. The proforma is included in Appendix 3. The maps are detailed in Appendix 2.

A list of these 53 CNMA locations is provided below.

Roads (42)

1. Between Renfrew Road and Arkleston Road (M8) in the vicinity of Abbotsinch Retail Park, Paisley.
2. At Causeyside St / Canal St Junction and Glasgow Road , Paisley.
3. a) Between Glasgow Road and Dumbarton Road, Anniesland ,
b) Victoria Park South, Whiteinch, Glasgow
4. Between Great Western Road and Bearsden Road, Anniesland, Glasgow
5. Crow Road, Jordan hill, Glasgow
6. Dumbarton Road, Near Incholm Street and Ferryden Street, Glasgow
7. Berryknowes Road, Near M8, Glasgow
8. Maryland Drive, Paisley Road West and M8,Govan, Glasgow
9. Broomloan Road and Paisley Road West, Rhynle Drive, Glasgow
10. M8, Near Clifford Street and M77, Glasgow
11. Paisley Road West, Near Cessnock Subway, Glasgow
12. M8, Near Vermont Street, Pollokshields, Glasgow
13. Seaward Street and Paisley Road West, Glasgow
14. Wallace Street, Morrison Street and Paisley Road, Near M8, Glasgow
15. Finnieston Street and Lancefield Quay, Glasgow
16. Argyle Street, Near M8 and Anderston SPT, Glasgow
17. Blythswood Street, Near St.Vincent Lane, Glasgow
18. Between St. Vincent Street, M8 and Berkley Street, Glasgow
19. Woodlands Road, Near St. Georges Street and M8, Glasgow
20. Between Great Western Road, St. Georges Street, M8 and West Graham Street, Glasgow
21. Craighall Road, Near Port Dundas Business Park, Glasgow
22. Baird Street (A804), Near M8, Glasgow
23. Springburn Road, Near Charies Street, Glasgow
24. High Street, Ingram Street and Albion Street, Glasgow
25. Clyde Street, Near Dunlop Street, Glasgow
26. Hospital Street, Near Sandifield Road, Glasgow
27. Caledonia Street and Silverfir Street, Glasgow
28. Alexandra Park Street, Near Harcourt Drive and M8, Glasgow
29. M8, Near Gala Street, Glasgow
30. M8, Near Longston Road, Glasgow
31. M8, Near Kildermorie Road, Glasgow
32. Duke Street, Near Cumbernauld Road, Glasgow
33. Maryhill Road, Near Sandbank Street, Glasgow
34. Beith Street, Near Hayburn Street, Glasgow
35. Byres Road, Near Observatory Lane, Glasgow
36. Garscube Road, Near Northpark Street, Glasgow
37. Fenwick Road, Near Fenwick lace, Glasgow
38. Busby Road, Near Arthur Street, Glasgow
39. East Kilbride Road, Near Glenville Gate,Glasgow
40. Main Street, Near Jackson Court, Glasgow
41. Calder Street, Near Whifflet Street, Glasgow
42. Deedes Street, Near Kennedy Drive, Glasgow

Rail (11)

1. Near Clyde Bank Public Park and Dumbarton Road, Dalmuir
2. Greenend Avenue , Milliken Park , Johnstone.
3. Between Brown Street and St. James Street, Millarston Drive, Glasgow
4. Peel Lane, Near Crow road, Partick
5. Between Paisley Road West and B768, Govan
6. Near Jamaica Street and Argyle Street, Glasgow Central Station
7. a. Near Victoria Road, A77 and b. Dixon Street, Queens Park
8. Near Main Street, A724, Cambuslang
9. Areas between Gartsherrie Road and Stobcross Street, Coatbridge
10. Near Carfin Street and Clydesdale Road, New Stevenson
11. Near Alexander Street and A721, Wishaw

4.7 Industrial Noise

No attempt has been made to identify Candidate Noise Management Areas in relation to industrial noise as this type of noise is, as previously described and dealt with through an existing enforcement regime. Enforcement offers a faster and more specific response to noise problems than is possible through noise mapping. The enforcement service is available through each of the local authorities that form part of the agglomeration. The service will investigate complaints against most commercial premises that operate within their boundaries. However, there are some for whom the enforcement authority is the Scottish Environmental Protection Agency ( SEPA). It would improve access to the relevant services if this distinction was made clearer to the public. It is a recommended action of this report that the Scottish Noise Mapping Website be expanded to include clear guidance as to when members of the public affected by noise should contact their Local Authority and when they should contact SEPA .

4.8 Airports

BAA, the operator of Glasgow Airport is the competent authority under the Environmental Noise (Scotland) Regulations 2006 for the production of the relevant noise maps and Action Plan.

Glasgow Airport does form part of the Glasgow Agglomeration. The area mapped around the Airport shows that only the 55-60 and the 60-65dB contours are coincident with the Glasgow Agglomeration and this is not a level that would result in a Candidate Noise Management Area. This area has also been examined for the effects of aircraft noise and other mapped noise sources being consolidated.

The airport Action plan addresses the issue of noise from aircraft affecting residents in the agglomeration. It identifies Yoker, Bearsden, Linwood and Gilmarton Road area., within the agglomeration as higher priority compared to elsewhere. However any measures taken to reduce aircraft noise will impact the total area within the noise contours, benefiting a wider audience than any targeted priorities. Therefore Glasgow Airport will adopt a generic approach in aiming to reduce aircraft noise.

4.9 Process of Assigning Noise Management Areas CNMA to NMA

Prior to any CNMA being promoted to a NMA it will be subject to detailed scrutiny. In so far as is reasonably practical efforts will be made to ensure that noise contours are accurate and the numbers of people believed to be affected are correct. Where the CNMA status appears to be inaccurate either as a result of erroneous data or where local topography and design have reduced the number of people affected then the area will not be promoted to a NMA. Where the CNMA status is considered to be warranted the area will only be promoted if there are remedial actions that are likely to be effective. The potential remedial actions will be the subject of a cost benefit analysis. Consideration will also be given to who would be responsible for the actions and whether or not they are affordable or desirable. A list of possible considerations is listed below. These considerations are not to be considered as absolute, but should be used with appropriate care.

As stated earlier during implementation of the Action Plan, a review process will be applied to each CNMA to determine whether it should become a Noise Management Area ( NMA). To support this review process, separate Technical Guidance will be provided. The Technical Guidance will also assist the key organisations and their stakeholders in addressing the technical detail of the Noise Action Planning process.

Evaluation of the data input into the Noise Mapping Model

Local circumstances not reflected in the noise contours

The noise affects people in significant numbers
The noise is significant

The noise can be reduced e.g. quieter vehicles
The noise can be blocked e.g. barrier
The source can be reduced e.g. fewer cars - action possible
The source can be redirected / removed e.g. ban vehicles
The receiver can be protected e.g. sound insulation
The receiver can be removed e.g. change of use from residential over time)
The actions are achievable
The impact of any action(s) is(are) significant / measureable
The possible action is affordable
The longevity of any action
The maintenance requirements & costs of any action
The actions are not themselves undesirable
The actions do not hinder other policy objectives
The actions complement other policy objectives
There are no undesirable side effects

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