The Mayor’s Draft London Ambient Noise Strategy

Report: 5
Date: 21 October 2002
By: Clerk

Summary

This report seeks approval for a response to the Mayor’s Draft London Ambient Noise Strategy.

A. Recommendations

That

Members comment on and agree a response to the Mayor’s draft London Ambient Noise Strategy.

B. Supporting information

1. Section 42 (5) of the Greater London Authority Act 1999 requires the Mayor to consult the Assembly and functional bodies before carrying out public consultation on each of his strategies. The Mayor issued a pre-publication draft of an London Ambient Noise Strategy in July 2002 and has asked the MPA, the Assembly and the other Functional Bodies for their response to this draft.

2. A full copy of the Strategy is available in the Members’ Room or can be obtained from the Committee, Liaison and Members’ Services Unit. Appendix 1 outlines the Mayor’s priorities around which his policies are based.

3. A draft response has been prepared for members to consider; this is shown in Appendix 2. Sections of the strategy referred to in the response and relating to the MPA/MPS are shown in Appendix 3.

4. Members are invited to comment upon the strategy and response.

C. Equality and diversity implications

6. There are links between a poor quality environment and levels of crime. Socially excluded classes are particularly at risk of living in a poor quality environment. Improving environmental standards will help reduce their fear of crime. The Mayor’s strategy contains a specific equalities and diversity impact assessment on pages 25 - 27.

D. Financial implications

5. None specific to this report. The Mayor’s policy is to encourage the purchase and use of quieter vehicles, including helicopters. The strategy recognises that operational and performance criteria in relation to emergency and specialist police vehicle activity will be paramount, but the strategy promotes the need to introduce consideration of noise emissions criteria in the purchase of vehicles which may impact upon future costs. Similarly, striving to meet higher vehicle maintenance/emissions standards would impact on costs.

E. Background papers

• The Mayor’s Draft London Ambient Noise Strategy

F. Contact details

Report author: Jude Sequeira, MPA.

For more information contact:

MPA general: 020 7202 0202
Media enquiries: 020 7202 0217/18

Appendix 1: Mayor’s London Ambient Noise Strategy - Priorities

• Securing good, noise reducing surfaces on all the roads where they would be effective, along with less disruptive and better reinstated streetworks.
• Encouraging electric and other quieter vehicles.
• Building in noise reduction in day-to-day traffic management - to maximise gains from reducing stop-start driving as congestion falls, smoothing traffic flow, allocating street space better, and other transport measures.
• Improving noise environments through ‘Streets for People’, in Home Zones, through Safer Routes to School, in town centres, and in exemplar Public Space projects.
• Developing a Traffic Noise Action Programme for the 550 kilometres of roads which Transport for London manages, including targeted traffic noise reduction projects.
• Trialling fuel cell buses, seeking to trial hybrid-electric buses, and seeking smoother and quieter driving, including through driver training.
• Establishing a London Ambient Noise Fund for exemplar noise reduction projects, and a London Domestic Noise Fund to improve internal and external noise, especially in poorly converted flats.
• Seeking improved railway track quality and maintenance on National Rail and Underground as soon as organisation and funding allow.
• Securing support for exemplar noise barrier-integrated photovoltaic power generation along suitable east-west roads and railways, and noise screening from safety and security fencing.
• Promoting development alongside or over suitable roads and railways, protecting wider areas from noise.
• Securing a night aircraft ban across London.
• Ensuring that ‘polluter pays’ levies compensate those affected by aircraft noise and other effects, such as through a London Area Environment Fund.
• Reducing noise through better planning and design. London’s growth in people and jobs presents challenges, but redevelopment and refurbishment also offer opportunities. New high density, mixed-use development does not have to be noisy, but can create quiet outdoor spaces away from traffic.
• Examining the scope for a Mayor’s Silver Sound Award, and promoting exemplar City Soundscape projects.

Appendix 2: Letter from MPA Clerk to Director of Police and Partnerships regarding consultation on the Mayor’s Draft London Ambient Noise Strategy

Jeff Jacobs
Director of Police and Partnerships
Greater London Authority
City Hall
The Queen’s Walk 
London SE1 2AA

1 October 2002

Dear Mr. Jacobs,

Consultation on the Mayor’s Draft London Ambient Noise Strategy

Thank you for your letter dated 4 July 2002 in which you invite the Metropolitan Police Authority to comment on the Mayor’s draft Ambient Noise Strategy under section 42(5) of the Greater London Authority Act 1999. The Authority’s comments are as follows:

1. The issue of ambient noise is not one on which the Authority can provide any authoritative advice but we welcome the draft strategy and consider its scope and context to be about right.
2. We confirm the statement contained in Box 20 (p.43) that non-life threatening offences are low on the MPS priorities for enforcement activity and welcome the Mayor’s approach in focusing policy proposals on noise source reductions rather than on enforcement action.
3. We add that, as far as the MPA is aware, noise issues do not feature strongly in the crime audits and community safety strategies of London’s 32 borough Crime and Disorder Reduction Partnerships. This reflects the Londoners’ survey results shown in Box 9 (p.9) that noise pollution is below other issues, such as crime, transport, cost of living, litter etc.
4. We acknowledge Policy 18 which states, “The Mayor will urge the GLA Group (functional bodies) to, wherever practicable and cost-effective in relation to operational needs, use vehicles and equipment which demonstrates good practice in quiet and considerate design and operation”. The MPA will help foster the sharing of information and advice between the Mayor’s Office and the MPS where necessary. We will also strive to incorporate noise impact criteria in the procurement of new fleet. We also confirm the details shown in Box 30 (p.62) that refer to the balance needed to be struck between vehicle technology and siren use with operational requirements and fitness for purpose.
5. The MPA recognises the noise nuisance that arises from helicopter movements relating to specialist and emergency police activity as described in Box 45 (p.99). The MPA welcomes the Mayor’s approach not to change policy with respect to such helicopter movements. The MPA will be happy to work with the Mayor and the MPS in keeping the use of helicopters under review and aim to purchase quieter helicopters at time of replacement.
6. The Authority will aim to be supportive of the Mayor’s policies to reduce ambient noise pollution; the improvement of the quality of life in London will contribute to the MPA and MPS’s objective to making London the safest city. A copy of the MPA/MPS policy framework document “Towards the Safest City” is enclosed for your information, although we do not think there are specific links between this and the Mayor’s draft strategy.

I hope these comments are helpful. If you need to discuss any matter further, please do not hesitate to contact me.

Yours sincerely,

Catherine Crawford
Clerk to the Authority

Appendix 3: Sections from the noise strategy

Section 2

(from p.9)

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.

Box 9: Annual Greater London Authority Surveys, 2000 and 2001

An interview survey of a sample of residents across Greater London was carried out by MORI in 2001, building on an initial survey in 2000. In 2000, people were asked what were the two or three worst things about living in London. 4% mentioned noise pollution. This compared with 32% mentioning feeling unsafe/high crime, 27% poor transport and 26% unaffordable cost of living. The survey did not distinguish between types of noise. In 2001, people were asked more structured questions, including ‘Thinking about the environment in London, how much of a problem, if at all, do you consider each of the following to be?’

NB: All figure are percentages.

Those who said they were likely to move away from London in the next two years were asked why. In unprompted replies, 10% cited noise in 2001, compared with 14% crime, 13% affordable home, and 11% better area.

‘State of London 2000: Quantitative Survey – Final Report’ MORI for Greater London Authority, October-November 2000. ‘Annual London Survey 2001: Londoner’s views on life in the capital’ MORI for Greater London Authority, October-December 2001.

Section 4A

(from p.42)

Vehicle noise enforcement

4A.12 Legal action can be taken against a vehicle producing excessive noise. Vehicles must, by law, be fitted with effective exhaust silencers. Regulations require road users not to make excessive noise, and not to run the engine unnecessarily while stationary. Such problems may not affect long term ambient noise levels, but they can startle or annoy, particularly in the evening or night.

4A.13 The annual MoT test and roadworthiness inspections include an assessment of the integrity of exhaust systems. Unlicensed vehicles which have not been MoT tested are more likely to have faults which increase noise. The Mayor seeks to improve vehicle registration rates and enforcement. More vehicles going through MoT testing will help to reduce noise as well as improve safety. An Enforcement Task Force has been established to pursue initiatives in partnership with the police, the boroughs, the Association of London Government, the Driver and Vehicle Licensing Agency and others (Transport Strategy Proposal 4G.2). A European Commission Green Paper COM (96) 540 proposed consideration of in-service noise testing for road vehicles. Work at the Transport Research Laboratory has investigated aspects of in-service testing. 

4A.14 The Mayor’s Air Quality Strategy includes support for a better vehicle maintenance campaign, and action on vehicle emissions testing by boroughs and others. Better engine tuning and other vehicle maintenance should help to reduce noise. The Mayor and the Metropolitan Police Authority support Government proposals to allow Traffic Wardens stop vehicles for emissions testing. The Road Traffic (Vehicle Emissions)(Fixed Penalty) Regulations, which came into operation in May 2002, allow local authorities to legally test vehicle emissions at the roadside and require drivers to switch off their engines when parked at the side of the road.

Box 20: Vehicle noise enforcement by the Police

Limited resources mean that non-life threatening construction and use offences are low on Metropolitan Police Service (MPS) priorities for enforcement work. Many infringements are dealt with by verbal warning or advice, or under the Vehicle Defect Rectification Scheme (VDRS). VDRS requires approved repairs to be made as an alternative to prosecution. VDRS cases are resolved locally within Criminal Justice Units. The Central Document Offences Unit of the MPS recorded the following in respect of the issue of non-endorsable fixed penalty tickets, for the period 1 November 1999 to 30 June 2001:

Box 11: Other vehicle noise enforcement

The Vehicle Inspectorate has a duty to investigate defective vehicles. Activities are currently focused on goods vehicles, where the risks associated with most defects are greater than from a car. In respect of silencers which are not of the approved type, the Vehicle Inspectorate recommends the issue of a ‘defect notice’. This is similar to the VDRS scheme (see above). It requires the owner to replace the defective part.

A London-wide vehicle testing programme across London boroughs through the Association of London Government is being sought. Improving air quality is a primary aim, but it should also be cost-effective to, at the same time, address vehicles that are excessively noisy.

Policy 5

The Mayor will urge the Government to promote UK research and trials on the potential for noise reduction offered by practical and cost-effective forms of in-service vehicle noise testing, including at night.

Proposal 2

Cost-effective opportunities to achieve quieter in-service vehicle noise levels will be integrated with work referred to in the Mayor’s Air Quality Strategy, such as supporting a vehicle maintenance campaign and action on vehicle emissions testing.

GLA and functional body fleets and facilities

(from p.62)

4A.66 The Greater London Authority’s procurement policies seek to minimise vehicle use and noise alongside other environmental objectives. Where practicable, tenders place a requirement on contractors to state relevant policies. Transport for London, the fire brigade, the police and the London Development Agency – the GLA ‘functional bodies’ - also take noise into account, although, of course, the safe and effective operation of the emergency services requires the generation of sound.

Box30: Metropolitan Police Authority, Metropolitan Police Service

Frontline liveried response vehicles are replaced after 30 months, using latest available technology. Liquid petroleum gas and electric vehicles have been trialled for use where operational requirements permit, including two small electric city cars from February 2002. Police warning sirens need to use a readily recognisable range of sounds, at volumes which can be readily heard by drivers within well-insulated vehicles which may have closed windows and in-car amplified sound. Noise from specialist vehicles and equipment, such as boats and generators is taken into account in terms of overall fitness for purpose.

Policy 18

The Mayor will urge the GLA group (‘functional bodies’) to, wherever practicable and cost-effective in relation to operational needs, use vehicles and equipment which demonstrate good practice in quiet and considerate design and operation.

Section 4C

(from p.99)

4C.52 Police and other security operations can operate lower than other helicopters, and can depart from normal helicopter routes. Policy is, however, normally to fly as high as possible, subject to air traffic constraints. Air ambulance services operate from the Royal London Hospital at Whitechapel. Helicopter Emergency Medical Services (HEMS) have been expanding. Helicopters operating at night will normally be police or security services.

Box 45: Police helicopters

Police helicopter operations are governed by the provisions of a Police Air Operations Certificate, issued by the Civil Aviation Authority and held by the Metropolitan Police Commissioner. The Home Office act in an advisory role. The Metropolitan Police Service Air Support Unit operates helicopters from Lippitts Hill in Epping Forest District, and Fairoaks in Surrey. The latter may relocate to RAF Northolt. Three helicopters are owned, carrying out some 8,000 movements from both bases in a year, flying a total of 3,300 hours and responding to 7,500 tasks. These include counter terrorist work, intelligence gathering, photographic, public order, crime prevention, missing person and suspect searches, vehicle pursuits and public safety tasks. When the current machines are replaced, noise will be one of the major factors taken into account in order to reduce impacts over London.

Policy 53

The Mayor will urge the Government and air traffic services to keep the noise implications of changing helicopter use under review, together with emerging opportunities for cost-effective monitoring and control, and to examine, in consultation with the Mayor, London boroughs and others, how relevant technologies could provide new ways of minimising the noise impact of helicopters on particular corridors or localities.

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