HomeMy WebLinkAboutM-75-0012REQUIREMENTS FOR IMPLEMENTATION
OF A NOISE ABATEMENT PROGRAM
FOR THE CITY OF MIAt1I , FLORIDA
JUNE 1974
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INTRODUCTION
Noise is defined to be unwanted sound and is present in man's environment
from before birth and throughout life. Noise is a pollutant in the environ-
ment and like other forms of pollution is the result of past technological
decisions which were made without consideration as to their full implications.
As a pollutant then, noise is a sound that interferes with the social ends
of an individual or group and may even produce undesireable physiological
or psychological effects in man.
As a result of his way of life man produces essentially two types of
pollutants. The first type which the general public has long been aware of
may be said to consist of mass residuals (associated with air and water
pollution) that to one degree or another remain in the environment for
extended periods of time. More recently attention has been focused on a
second general type of pollution which consists of energy residuals such as
waste heat creating thermal pollution of waterways. Noise pollution is a form
of energy pollution and fortunately does not remain long in the environment.
Actually the total amount of noise pollution in terms of energy that is
produced in the world is small. However, the extraordinary sensitivity of
the human auditory system often allows the existing levels of noise pollution
to measureably effect man in an adverse manner.
It has long been known that noise can produce undesireable effects on
man ranging from interference with speech and distraction from concentration
to actual hearing loss. As a result, society has since antiquity (with the
prohibition of nighttime chariot movements) to the present sought ways to
inhibit t n rli" ..;! :%i .. : c.: C riect of noise. He ;ever, b: i th the inuurtria
revolution and especially since the enormous technological expansion which
has occurred since World War II, the level of noise pollution has grown
steadily with an ever increasing portion of man's life being affected, The
problem has grown to the point where it is not unusual to be subjected to
noise levels oh public streets or in our homes that were once only to be
encountered in factories or industrial situations.
Widespread awareness and concern to the problems associated with noise
pollution have been slow in developing for several reasons. Noise decays
rapidly with times .Hence even when an individual is spurred into action to
abate noise, unless efficient mechanisms for noise control (municipal agencies)
are readily available (and usually they are not) the source of the noise may
no longer be present when an investigation is ready.
Secondly, the definition of what is unwanted sound is often based on a
subjective evaluation and can vary from person to person or even from one time
to another. The actual effects of sound are often insidious with the results
(occupational induced hearing losses) appearing gradually and hence the
classification of what constitutes an objectionable sound is further
complicated.
Finally, the typical individual in this country is proud of the nation's
technological progress and the way in which life is made easier through our
many transportation and labor-saving devices. While many of these products
of technology increase the environmental noise level, the average citizen has
tended to accept the additional noise as part of the price of progress.
Generally however, the technology exists today to control most environ-
mental noise and the scientific community has considerable knowledge as to
the physiological and psychological effects of noise. It remains for the
s and
utilize the avai Lb i e capabi l i ti c_• and i:nc:,n cdgL tz ciiate the existing level
of noise pollution and provide for a more pollution free future.
This report will outline the steps which should be carried out in order
to establish an effective noise abatement program for the City of Miami,
Florida. A review will be presented of the steps to be taken in any effective
program which might be undertaken to develop an ordinance program. Secondly,
the report gives a proposal of how this might be carried out if the FAU-FIU
Joint Center for Environmental and Urban Problems were requested to assist
the city.
PROGRAM REQUIREMENTS
An understanding of the characteristics of the sources of environmental
noise in the city together with their respective impacts on the quality of
life is fundamental for the formulation of a balanced noise abatement program.
It is clearly necessary that any such noise pollution abatement program must
be predicated on a quantitative understanding of the contribution of each of
a wide number of noise producing devices.
The outdoor noise environment results from all of the noises in the
community. The resulting noise levels vary with location in a community
and with time of day. While it is not practical to identify and characterize
each and every noise source the following categories are identifiable and
should be analyzed:
1. Transportation systems
2. Devices powered by internal combustion engines
3. Industrial plants
4. Construction sites and equipment
5. Household appliances and building equipment
.lc.er to effect a ae,:m :
characteristics, magnitude and time hittories the following factors should
be measured:
1. Magnitude and frequency description of noise
2. Duration of noise
3. Time of year (windows open or closed)
4. Time of day
5. Outdoor noise level in community when intruding noises are not present
6. History of prior noise exposures and responses
The actual accounting process is obtained through an environmental noise
study. Using high quality measurement instrumentation an acoustical
inventory is made of the community. The noise survey is essential to gaining
a clear understanding of the unique acoustic characteristics of a particular
community in terms of the noise levels present and the important sources of
noise. .This study will provide baseline data on noise levels, point out
trouble areas and highlight the good qualities of the community. All of
this is essential when a community proceeds in implementing its noise control
program.
In addition to the noise survey, a study should be made of the history
of noise complaints and the manner in which they have been handled. Actually
this is done prior to the actual noise study as it generally provides clues
as to what important problems may require special attention.
Finally an examination of the existing governmental structure of the
city should be carried out for the purpose of developing the optimum organiza-
tional structure from inspector to city attorney for carrying out the program.
The shaping of the governmental structure to enforce the noise control program
will be influenced by the findings of the community noise survey. In fact
the thrust and central purpose of the noise study is to provide information
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ro,: in to Ms of frequency
forru ldtiut: of an effectiv2 control Pr, Y' t:.: it, ilid::':. :1. th i
exlination and based on the problem tnrgnituc s deter;:incd frc. , i.ht?.. 11oi5�
survey should be the numbers and types of people to be included in the
program. Lastly the equipment and training requirements should be specified.
Hence as is always the case in any endeavor if one is to expect the
maximum results for an expenditure in time, money and people, it is necessary
to clearly understand the problems and the best ways to solve them,
Experience has shown that failure to follow this approach results in ineffective
programs.
During the early summer of 1973 a brief examination of noise pollution
in the Dade County area was sponsored jointly by the Greater Miami Chamber
of Commerce and the State Department of Pollution Control. As a result of
the study it was found that the City of Miami had in effect noise control
regulations in Chapter 36 of the Code and Section 38 of Article IV of
Ordinance No. 6871, the Comprehensive Zoning Ordinance for the City of Miami.
In addition the city has responded to noise complaints and a record has been
maintained of these by the Zoning Department. The ordinance structure as it
is presently structured is not sufficiently precise in its language to be
effective and the enforcement program is not of sufficient scope to provide
adequate noise control. It is therefore recommended that if the City of MiE:,.i
wishes to develop an effective noise control program it carry out the steps
outlined above. The information gained therefrom will allow for the design
and implementation of an effective noise control program tailored for the
City of Miami.
PROGRAM IMPLEMENTATION
In order to carry out the various elements of the scheme for developing
a noise abatement program the following schedule is suggested:
Li "ii C::
prLpttr :1C'i 01 ,,i't'
noise survey of sortie 100 sites
data analysis and interpretation
possible additional field measurements
and coordination with courts for evidence
requirements
draft ordinance, enforcement procedures
staffing and equipment requirements
together with coordination with Florida
Department of Pollution Control and the
U. S. Environmental Protection Agency
report preparation
review by city administration and
possible revisions: to final copy of report
ESTIMATED TOTAL TIME REQUIRED
4 wLeks
8 .weeks
6 weeks
2 weeks
4 weeks
3 weeks
3 weeks
30 weeks
This study could be carried out over an eight month period, given a
month for possible poor weather and other delays. The results of the study
should be presented as recommendations to the city for the establishment
of an effective noise abatement program and shall include:
1. an effective noise control ordinance specifying permissible
noise levels for land use, construction sites, highway vehicles
and other sources of noise.
2. an abatement program and operational procedures.
3. manpower and equipment requirements.
4. a description or inventory of the existing noise levels and
problems of the city.
5. provisions for training a number of city personnel.
Specifically, the field measurement study should include 24 hour
measurements at selected sites in order to characterize the ambient noise
levels in the city. By spreading the study over the suggested time period
it will not only be possible to adequately cover the city but also determine
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what sLcsonla1 effects may exist„ in ;:_:., shorter noise measurements
should be made of specific noise sources such as traffic, construction and
fixed mechanical equipment. The combined results of both 24 hour automatic
and the shorter manual measurements will provide a clear picture of the
noise levels found as well as the extreme offenders and provide background
and direction for the noise abatement program. The data obtained should
be analyzed for its level and time characteristics using the guidelines
presented in "Information on Levels of Environmental Noise Requisite to
Protect Public Health and Welfare with an Adequate Margin of Safety", EPA,
March 1974. During the collection of field data city personnel should
accompany the measurement staff in order to become familiar with field
procedures. Again, the data obtained in the study will be essential
ingredients in the development of the engineering and legal aspects of
the enforcement procedures for the abatement program. Finally, in addition
to the gathering of field data on noise levels, a study should be carried
out to determine public reaction to noise and specifically what they feel
are the most serious problems. This should be done as early in the study
as possible to provide insight as to where potential problems are.
The study and noise abatement development program could be carried
with the assistance of staff of the FAU-FIU Joint Center providing for the
direction and coordination of the study, acquisition and analysis of field
data, and development of the necessary information for the implementation
of enforcement and education programs. The support for the direction of
the study would be provided by the FAU-FIU Joint Center and the Florida
Department of Pollution Control.
In order to give some idea of the cost of the proposed program it is
estimated that the financial commitment by the City of Miami required for
the support of an effective development program will be approximately
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Ld ried out by thr.: Jo h. .
amount of
include tip cost of acoustical c_:;u ;....nt (Lcut S154000)
which could be retained by the city after the study. The remainder of
the amount would be for the support of students participating in the study
and expenses associated in operating such a program. This represents one
alternative for developing the abatement program. Certainly others exist •
which include various degrees of participation of city personnel and/or
other outside participants. The actual program used would depend on the
degree to which the city would elect to commit funds and city staff to the
project.
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