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Horizontal Guidance for Noise Part 1 - Regulation and Permitting
www.environment-agency.gov.uk www.environment-agency.gov.uk Horizontal Guidance for Noise Part 1 - Regulation and Permitting Integrated Pollution Prevention and Control (IPPC) Horizontal Guidance Note IPPC H3 (part 1)
Preliminary Pages ii Version 2 September 2002 Environment Agency Noise Regulation and Permitting Commissioning Organisation Environment Agency Rio House Waterside Drive Aztec West Almondsbury Bristol BS32 4UD Tel 01454 624400 Fax 01454 624409 © Environment Agency First Published 2002 ISBN 0 11 310123 6 This document is Environment Agency copyright.
We specifically allow the following:
Internal business or personal use. You may use this document for your own private use or for use within your business without restriction.
Giving copies to others. You may do this without restriction provided that you make no charge. If you wish to use this document in any way other than as set out above including in particular for commercial gain, for example by way of rental, licence, sale or providing services you should contact: Liz Greenland Environment Agency Commercial Policy Unit 2440 The Quadrant Aztec West Almondsbury Bristol BS32 4AQ Record of changes Version Date Change Consultation and working draft March 2001 1 December 2001 Revised following consultation process 2 September 2002 Published Note: Queries about the content of the document should be made to Lesley Ormerod (0117 914 2767) or any member of the IPPC Project or Technical Guidance Teams.
Written comments or suggested improvements should be sent to Graham Winter at the Environment Agency’s Technical Guidance Section by email at graham.winter@environment-agency.gov.uk or at the above address
Preliminary Pages IPPC Version 2 September 2002 Environment Agency iii Executive summary This guidance has been produced by the Environment Agency for England and Wales in collaboration with the Scottish Environment Protection Agency (SEPA) and the Northern Ireland Environment and Heritage Service (EHS). Together these are referred to as “the Agency” or “the Regulator” throughout this document.
Publication of this document follows consultation with industry, government departments, local government and non-governmental organisations and full public consultation. Integrated Pollution Prevention and Control (IPPC) is a regulatory system that employs an integrated approach to control the environmental impacts of certain industrial activities. It involves determining the appropriate controls for industry to protect the environment through a single permitting process. To gain a Permit, operators will have to show that they have systematically developed proposals to apply the Best Available Techniques (BAT) and meet certain other requirements, taking account of relevant local factors.
The Agency intends to implement IPPC to:
protect the environment as a whole
promote the use of “clean technology” to minimise waste at source
provide a “one-stop shop” for administering applications for permits to operate Once a Permit has been issued, other parts of IPPC come into play. These include compliance monitoring, periodic Permit reviews, variation of Permit conditions and transfers of permits between operators. IPPC also provides for the restoration of industrial sites when the permitted activities cease to operate.
This document forms part of the guidance on the arrangements for dealing with permitting of emissions of noise and vibration under the Pollution Prevention & Control (England & Wales) Regulations 2000. See Reference 1 and Appendix 7 for equivalent legislation in Scotland and Northern Ireland. This guidance is in two parts:
Part 1, this document, outlines the main considerations relating to the Regulation and Permitting of noise 1 . It is aimed primarily at the information needs of Regulators;
Part 2: Noise Assessment and Control, describes the principles of noise measurement and prediction and the control of noise by design, by operational and management techniques and abatement technologies.
It forms a background to this document and will assist in determining BAT for a given installation. It is aimed equally at regulators and at operators. This document (Part 1) describes (i) the interactions between IPPC and other legislation relating to noise for England, Wales and Scotland, and (ii) the process of determination and drafting of Permit conditions 2,3.
It should be read in conjunction with the appropriate sector-specific guidance note. The approach relies heavily on the existing methodologies that have been developed over many years by local authorities and others, applying them within the BAT framework of IPPC (see Section 1.2). Regulation of noise under IPPC will bring together several legislative regimes with different scope but similar purpose and, in the case of A1 installations, will require a co-ordinated approach between the Agency and both the Planning functions and the Environmental Health or Environmental Protection Teams of local authorities.
At an early stage, lead planning and environmental health/protection officers should be identified to ensure an effective liaison and consultation process. In England and Wales the Environment Agency is responsible for those IPPC installations designated as “A1”. In Scotland SEPA is responsible for the regulatory control of all Part A IPPC installations. This is also the case in Northern Ireland. The legislation implementing IPPC has been put into place in England & Wales and in Scotland. In Northern Ireland, the legislation is at an advanced stage and any queries should be directed to EHS.
1 Throughout this document the term noise also includes vibration except where clearly differentiated by the context. 2 This guidance does not cover occupational noise exposure. 3 For those facilities covered by the Waste Management Licensing regime, reference should be made to the document Internal Guidance for the Regulation of Noise at Waste Management Facilities under the Waste Management Licensing Regulations (Reference 16). What is IPPC? The aim of this guidance
iv Version 2 September 2002 Environment Agency Noise Regulation and Permitting CONTENTS 1 THE REGULATORY FRAMEWORK FOR CONTROL OF NOISE AND VIBRATION .
1 1.1 INTEGRATED POLLUTION PREVENTION AND CONTROL . 1 1.2 IPPC REQUIREMENTS FOR NOISE . 1 1.3 INTERACTION BETWEEN THE AGENCY AND LOCAL AUTHORITIES . 4 2 APPLICATION, DETERMINATION AND PERMITTING . 5 2.1 OVERVIEW . 5 2.2 APPLICATION FOR AN IPPC PERMIT . 6 2.2.1 Noise and vibration information to be included in the application . 8 2.3 CONSULTATION . 10 2.3.1 Consultation between the Agency and local authorities . 10 2.3.2 Other consultees . 10 2.4 DETERMINATION OF BAT . 11 2.5 OPTIONS FOR PERMIT CONDITIONS . 14 2.5.1 Overview . 14 2.5.2 Statements in the application incorporated in the Permit .
14 2.5.3 Residual BAT . 14 2.5.4 Descriptive conditions . 15 2.5.5 Improvement conditions . 15 2.5.6 Use of numerical limits . 16 2.6 ONGOING REGULATION, COMPLIANCE AND ENFORCEMENT . 20 2.6.1 Defining responsibilities . 20 2.6.2 Monitoring . 20 2.6.3 Enforcement scenarios . 20 REFERENCES . 22 ABBREVIATIONS AND DEFINITIONS . 23 APPENDIX 1 — LEGISLATIVE FRAMEWORK FOR ENVIRONMENTAL NOISE . 24 APPENDIX 2 — LETTER/CHECKLIST FOR RECORDING THE ARRANGEMENTS MADE WITH THE LOCAL AUTHORITY . 26 APPENDIX 3 — REQUEST FOR CONSULTATION INFORMATION FROM LOCAL AUTHORITIES 27 APPENDIX 4 — SAMPLE CONDITIONS FROM PPG24 .
29 APPENDIX 5 — CO-EXISTING REGULATORY FRAMEWORKS FOR NOISE . 30 APPENDIX 6 — ALTERNATIVE APPROACHES TO SETTING NUMERICAL STANDARDS . 32 APPENDIX 7 — EQUIVALENT LEGISLATION IN SCOTLAND AND NORTHERN IRELAND . 33 TABLE OF FIGURES Figure 2.1 — The regulatory process for noise . 5 Figure 2.2 — Simple Assessment of risk . 12
LEGAL BACKGROUND THE PROCESS IPPC Version 2 September 2002 Environment Agency 1 1 The regulatory framework for control of noise and vibration 1.1 Integrated Pollution Prevention and Control Integrated Pollution Prevention and Control (IPPC) 4 is a regulatory system that requires an integrated approach to control the environmental impacts of certain industrial activities. It involves determining the appropriate controls for industry to protect the environment through a single permitting process. To gain a Permit, operators will have to show that they have systematically developed proposals to apply the Best Available Techniques (BAT) and meet certain other requirements, taking account of relevant local factors.
In England and Wales the Environment Agency is responsible for those IPPC installations designated as “A1”. In Scotland SEPA is responsible for the regulatory control of all Part A IPPC installations. This is also the case in Northern Ireland. The legislation implementing IPPC has been put into place in England & Wales and in Scotland. In Northern Ireland, the legislation is at an advanced stage and any queries should be directed to EHS. Noise and vibration are included within the definition of “emissions” as set out in the Pollution Prevention & Control (PPC) Regulations. Conditions will need to be included within the Permit for the control of noise, as appropriate to the specific situation.
IPPC requires the use of BAT in setting emission limit values or equivalent parameters, and in determining conditions relating to process parameters or technical measures. 1.2 IPPC requirements for noise Sector Guidance Notes lay down the indicative standards at a sector, or national, level for determining noise issues under IPPC. Noise issues, however, tend to be very site–specific. In accordance with the regulations, departures from any national standards can be justified at the installation level on the grounds of the technical characteristics of the installation concerned, its geographical location and the local environmental conditions.
Further information on this is given in Section 2.4 and in Reference 8. The Sector Guidance cross-refers to this Note, H3, Horizontal Guidance for Noise (Parts 1 and 2), which covers general issues relating to the regulation, assessment and control of noise relevant to all sectors.
The basic physics associated with this subject area are set out in Part 2 of this Note, Noise Assessment and Control (Reference 17). The material in Part 2 is given as supporting information for the guidance in this document. It is not intended to be a substitute for a more detailed study of the subject as taught, for example, in courses accredited by the Institute of Acoustics. Taken together, these Guidance Notes will ensure that all aspects necessary for the PPC Regulations, and other regulations that need to be given effect by the IPPC Permit, are addressed adequately in the application.
In determining BAT across an installation, noise will have to be considered and balanced within the wider context of other releases to different media (air, land and water), and taking issues such as usage of energy and raw materials into account.
Noise cannot therefore be considered in isolation from other impacts on the environment. Further explanation of this relationship is given in Section 2.4. In many cases, there will be no conflict between the needs of the different media but, where it does arise, IPPC Guidance Note H1 (Reference 5) contains methodologies for assessing such cross–media impacts.
Section 2.4 deals with the determination of BAT and Section 2.5 with the setting of conditions. The PPC Regulations require installations to be operated in such a way that “all the appropriate preventative measures are taken against pollution, in particular through the application of BAT”. The definition of pollution includes “emissions which may be harmful to human health or the quality of the environment, cause offence to any human senses or impair or interfere with amenities and other legitimate uses of the environment”. BAT is therefore likely to be similar, in practice, to the 4 IPPC operates under the Pollution Prevention and Control (England and Wales) Regulations 2000 and the Pollution Prevention and Control (Scotland) Regulations 2000 (Reference 1).
These regulations have been made under the Pollution Prevention and Control (PPC) Act 1999 and implement the EC Directive 96/61 on IPPC (References 2 and 3). Further information on the overall system of IPPC, together with Government policy and more detailed advice on interpreting the regulations, can be found in the Department for Environment, Food and Rural Affairs (DEFRA) document IPPC: A Practical Guide Edition 2 and the Scottish Executive/SEPA document The Pollution Prevention and Control (Scotland) Regulations 2000 a practical guide (Reference 4). What is IPPC?
How far should BAT go? The relationship of this General Note to Sector Guidance Notes The requirements of IPPC for noise and vibration
LEGAL BACKGROUND THE PROCESS 2 Version 2 September 2002 Environment Agency Noise Regulation and Permitting requirements of the Statutory Nuisance legislation, which requires the use of “best practicable means” to prevent or minimise noise nuisance. In the case of noise, “offence to any human senses” may be judged by the likelihood of complaints. However, a lack of complaints should not necessarily imply the absence of a noise problem.
In some cases it may be possible, and desirable, to reduce noise emissions still further at reasonable cost and this may therefore be BAT for noise emissions.
Consequently, one of the aims of BAT should be to ensure that there is no reasonable cause for annoyance to persons beyond the installation boundary. The need to “prevent” noise emissions is, in certain situations, less relevant for noise than for some other pollutants. Noise does not accumulate on the installation or in the environment permanently like some pollutants. In other words, when the installation ceases operations, the original noise climate may be restored. The aim should be, wherever feasible, to ensure that proposed additions to existing plant or activities do not add to the overall ambient level.
In some cases, however, this may be unreasonable or beyond BAT.
BAT will be installation–specific and, in determining what constitutes BAT, a number of factors will need to be taken into consideration (given in Schedule 2 of the Pollution Prevention and Control (England and Wales) Regulations 2000). The cost of applying a particular technique will need to be balanced against the increased benefit to the environment. Where an environment is particularly noise sensitive, the balance of costs and benefits will probably tip towards the need for additional cost, that is the environmental advantages would justify the increased cost. In this case, the Operator may have to go beyond the standard that would constitute BAT in a less sensitive environment.
A particular concern has been that the balancing of media impacts in an integrated assessment could lead, in some circumstances, to a reduced level of regulatory control for noise compared with the current regimes (for example, switching fans on and off to save energy can cause annoyance). It is anticipated that this will be unlikely to occur in most circumstances. In summary, the aim of BAT should be to achieve the following:
underpinning of good practice, a basic level of which the Operator should employ for controlling noise, including adequate maintenance of any parts of plant or equipment whose deterioration may cause increases in noise.
For example, this would include bearings, air handling plant, and the building fabric as well as specific noise attenuation measures associated with plant, equipment or machinery;
noise levels should not be loud enough to give reasonable cause for annoyance to persons in the vicinity, which is a more appropriate environmental standard than that of Statutory Nuisance and is normally the aim of most planning or other conditions applied by local authorities;
prevention of creeping ambient (often referred to as creeping background), which is the gradual increase in ambient sound levels as industry expands and areas develop.
These indicative requirements apply to both new and existing activities, but it will be more difficult to justify departures from them in the case of new activities. Indeed, because the requirements for noise are likely to be strongly influenced by local environmental conditions, new installations will be expected to meet BAT from the outset and to demonstrate that noise reduction or prevention has been built in to process design. For most existing plant, especially where there are no existing noise limits, the focus will be on good practice (BAT) and the need to ensure that there is no reasonable cause for annoyance.
In assessing any noise impact, existing levels will normally be monitored, then corrections and calculations applied rather than relying on predictions.
For new plant, in addition to the requirements for existing plant, clear targets may be needed to ensure that noise emissions do not contribute to a creeping background (ambient) sound level. In the case of new plant, sound levels should be predicted and modelled. Monitoring for subsequent compliance may be required and this may result in the need for additional noise reduction measures. The techniques for this are described in Part 2 of this note: Noise Assessment and Control (Reference17). Noise from trade, industrial and business premises is regulated under several different legislative regimes.
At the time of submitting an application for an IPPC Permit, an installation may already have a framework of specific noise or vibration-related conditions in place. Alternatively, it may not have been subject to any specific noise or vibration-related regulatory intervention at all. There are potentially areas of overlap between IPPC and the existing legislative framework, which will need to be recognised and considered at the permitting stage.
Waste Framework Directive Existing legislative framework New and existing installations
LEGAL BACKGROUND THE PROCESS IPPC Version 2 September 2002 Environment Agency 3
EPA'90 Part III — Statutory Nuisance
Control of Pollution Act 1974 (COPA)
Noise & Statutory Nuisance Act 1993 Details of these interactions and how to deal with them are covered in Appendix 5. However, the Agency must consider the extent of conditions relating to noise control that are required by the PPC Regulations in respect of a particular installation, notwithstanding the existence of noise control provisions under other regimes.
Where this results in a necessary duplication of control this should be addressed as an enforcement issue rather than a decision not to impose conditions in the PPC Permit.
the intention is that IPPC and other legislative provisions acting on a given installation will, as far as the legislation allows, be complementary in achieving the required level of control
the existing legislative framework needs to be taken into account when drafting Permit conditions. Where noise and/or vibration-related conditions are already in place, some of these will probably remain in force whatever the IPPC status of an installation
any conditions previously imposed by way of notices or through designation of a noise abatement zone or other Local Plan/Unitary Development Plan will need to be considered in consultation with the local authority.
There may be good reason for including some in the IPPC Permit
the Agency will need to maintain for its records an outline of the regulatory history relating to noise for each installation (including the planning history) for future reference
the implications for enforcement (that is, the split between regulators) need to be discussed by the Agency and the local authority, then documented Further detail on some less frequently encountered legislative provisions is given in Appendix 1.
LEGAL BACKGROUND THE PROCESS 4 Version 2 September 2002 Environment Agency Noise Regulation and Permitting 1.3 Interaction between the Agency and local authorities Local authorities and the Agency share joint responsibility for the various aspects of the working of the IPPC regulatory regime. A protocol has been drawn up between the Agency and the Local Government Association (LGA) on behalf of local authorities in England and Wales. This sets out high–level principles to ensure that operations work as effectively as possible to secure the highest level of environmental improvement under the legislation.
In Scotland, where SEPA is responsible for the regulatory control of all IPPC installations, specific arrangements to secure liaison will be put in place by local authorities and the Agency. In Northern Ireland, legislation implementing IPPC has not yet been put in place. This section therefore refers to the position in England, Wales and Scotland. Arrangements in Northern Ireland may be covered in subsequent revisions. The protocol, recognising particular areas of expertise among the respective regulators, sets out a broad framework describing the interaction between the Agency and local authorities on IPPC issues relating primarily to noise and releases to controlled waters/sewers, and also to exchanges of information and other procedural matters.
While the protocol sets out the high–level arrangements, the detail will be given in accompanying guidance. This document describes the arrangements for noise and vibration. It is expected that some form of local working arrangements will be drawn up in due course between individual local authorities, groups of authorities or local pollution groups and Agency area offices. These will be based on the framework set out in the protocol to enact the requirements in a way that recognises local commitments, constraints and workloads.
The protocol suggests that, as well as the formal consultation required by the PPC Regulations, the Agency should encourage as much informal exchange of information as resources Permit, commensurate with the degree of risk associated with particular installations.
The exchange is likely to be two-way in most cases, as local authorities will need information and advice about releases to water from A2 installations. Such exchanges will need to continue, as appropriate, beyond the permitting stage with regard to compliance and enforcement.
From time to time, issues may arise where the nature of the interaction is more complex. It is suggested that resolution be attempted initially by discussion between the relevant case officers and a request for further information relating to the particular issue. Should this prove unsuccessful, or if there are aspects that need to be considered in the context of wider consistency, the matter should be referred through normal line–management channels. Section 2.3(Consultation with statutory consultees) describes the information required from the local authority with regard to noise in the consultation response and the likely interaction between the regulators.
High–level arrangements Consultation with Local Authorities
LEGAL BACKGROUND THE PROCESS Overview Application Consultation Determination Permit conditions Enforcement IPPC Version 2 September 2002 Environment Agency 5 2 Application, determination and permitting 2.1 Overview The permitting process can be broken down into a number of stages, which are shown in Figure 2.1:
pre-application discussions and receipt of (valid) application (see Section 2.2)
consultation with statutory consultees and the public (see Section 2.3)
determination of the application (that is, of BAT) (see Section 2.4)
setting Permit conditions (see Section 2.5)
ongoing regulation and ensuring compliance (see Section 2.6) Figure 2.1 The regulatory process for noise.
Stages of the permitting process LA consultation response covering the items given in Section 2.3.1 and Appendix 3 Permit conditions (Section 2.5) Determination of BAT (Section 2.4) Pre-application discussion ⇒ Operator submits his (valid) application as defined by the Sector Guidance Is there sufficient information? Is this an inherently quiet site? No specific IPPC conditions. Rely on “residual BAT” condition (and any planning conditions if they exist). Review if problems arise Assess the
IMPACT and any cross– media conflicts in the light of the consultee responses and any existing noise/vibration conditions from WML, or any LA–controlled regime.
Send to consultees Other consultation responses Consultation (Section 2.3) Develop specific IPPC conditions Options for conditions
reference back to application;
descriptive conditions – operational containment, specific techniques etc., control of tonal, impact or other characteristics;
numerical limits – boundary, sensitive receptor etc (see Part 2);
monitoring/compliance– related;
reporting Replicate planning conditions in IPPC Permit yes no Acknowledge/ record planning conditions in a note on the case file yes Ongoing discussion Responses Agency regulates IPPC Permit conditions, but either Agency or LA can take enforcement action – as agreed locally, noting that if there is a non-compliance that could impact on the other Regulator, or if enforcement action is to be taken, then the other party should be advised and the matter discussed as appropriate.
Confirm understanding to LA (Appendix 2) re extent of installation, IPPC conditions, who will respond to incidents, enforcement agreement, and the like.
Form view on BAT in terms of techniques and limits no no yes Are the planning or waste management conditions agreed to be adequate? Request more information Enforcement (Section 2.6)
LEGAL BACKGROUND THE PROCESS Overview Application Consultation Determination Permit conditions Enforcement 6 Version 2 September 2002 Environment Agency Noise Regulation and Permitting 2.2 Application for an IPPC Permit The application requirements for noise and vibration are laid down in the regulations and are set out in Section 2.9 of the Sector Guidance Notes or the General Sector Guidance (the requirements are expanded on the following pages).
In outline, the Operator must provide information relating to: (i) the techniques employed to control noise (ii) the emissions of noise from the installation (iii) an assessment of the impact of those emissions on the environmental receptors The level of detail supplied in the application should be commensurate with the level of risk. In other words, the higher the risk of causing annoyance or other environmental impact, the more detail is required and the higher the expectation of a proactive approach to noise control. Discussions with local authority officers at the outset of the application procedure are likely to be very valuable.
The likely risk posed by the installation can be ascertained and this will act as a guide to the level of detail required from the Operator.
Where the activities are inherently quiet and there is no history of noise nuisance, information requirements will be minimal. Where the activities are noisy, but have no history of noise nuisance by virtue of remote location or other reason that could change in the future, it is expected that due regard is given to the possibly transient nature of the situation in the supply of information and in ensuring that improvement is factored into longer–term plans. Significant modifications to plant should still be expected to meet standards required of new plant and in any event the general BAT requirement will still apply to existing plant.
There will probably be relatively few applications for operations where environmental issues arising as a result of vibration are evident (that is vibration that arises from the activity being perceptible at the sensitive receptor). It is anticipated that the local authority would make the Agency aware of any previous issues relating to vibration early in the application process. The extent of the installation will have been assessed separately. It is quite likely that there will be aspects of the site that are not included within the IPPC installation. The split between installation and non-installation noise will need to be determined.
There are two splits to consider: 1. On a large site, the installation may not take in all activities under the control of the Operator. The noise sources outside the installation “boundary” will remain under the provisions of Planning/ Statutory Nuisance. This split of sources will need to be agreed with the local authority at an early stage.
2. Within the boundary of the installation, there may be activities or types of sources that are covered by other legislative provisions which have not been repealed or amended by the PPC Regulations and which might legitimately be non-installation noise. This might include construction work, intruder alarms and guard dogs. Discussion with the local authority should identify a common–sense approach for a given installation. As a guide, the following activities or sources (in addition to that arising from the process itself) are likely to fall within the installation, provided that they are technically connected:
transport of materials between parts of the process — including non-vehicular means of transfer such as pumping, blowing or conveyors.
Vehicular transport off-site is not covered;
warehousing and associated transportation
raw material or other stockyards, and associated transport and stock–management activities
waste recycling or waste storage areas
emergency equipment — generators, flares, dump stacks
boiler blow-down and maintenance activities
commissioning and construction or modification work that is not covered by COPA or planning provisions — for example, where we require modifications to a bund, storage area, drainage and the like
loudspeaker address systems, provided that they are associated with managing the activity;
high–level alarms or other audible warning devices (external)
vehicle reversing alarms Application requirements — general Level of detail required Vibration What is included in an installation?
LEGAL BACKGROUND THE PROCESS Overview Application Consultation Determination Permit conditions Enforcement IPPC Version 2 September 2002 Environment Agency 7 Some sources or aspects of noise generation on the installation are covered by other legislation:
intruder alarms on buildings
transport on access roads beyond the installation boundary At the pre-application stage, it is important to be clear about which noise or vibration sources are likely to fall outside the installation and remain under local authority control. This can be explored in more detail during the determination phase.
In some cases, it may be appropriate for the Agency to have information on sources adjacent to the installation if this might assist in differentiating between sources. Advice on defining the extent of an installation can be found in the Department for Environment, Food and Rural Affairs (DEFRA) document IPPC: A Practical Guide Edition 2 and the Scottish Executive/SEPA document The Pollution Prevention and Control (Scotland) Regulations 2000 a practical guide (Reference 4).
Appendix 2 suggests a template letter of agreement/confirmation relating to the regulatory split of sources on a site between the Agency and the local authority. What might be excluded from an installation?
LEGAL BACKGROUND THE PROCESS Overview Application Consultation Determination Permit conditions Enforcement 8 Version 2 September 2002 Environment Agency Noise Regulation and Permitting 2.2.1 Noise and vibration information to be included in the application The following section expands on the noise and vibration requirements of Section 2.9 of the Sector or General Technical Guidance Note and the application template.
It describes, in detail, the information required to determine BAT for noise and vibration. 1. The main sources of noise and vibration that fall within the IPPC installation, providing the following information for each source:
whether continuous or intermittent
the type of emission – aural or vibrational – and its characteristics (for example, impulsive, tonal elements or other distinguishing feature such as clatter, hiss, screech)
its contribution to overall site noise emission (categorise each as high, medium or low if there is no available supporting data when applying)
the location within the installation on a scaled map (where appropriate this can be combined with the requirement in (3) below to identify sensitive receptors) A common–sense approach needs to be adopted in determining which sources to include.
The ones that need to be considered are those that may have an impact on the local environment and lead to annoyance. For example, a small unit could cause an occupational noise issue in an enclosed space, but would be unlikely to cause an environmental noise problem. Conversely, a large unit or a number of smaller units enclosed within a building could, for example, cause annoyance if doors are left open. Remember, too, that noise which is not particularly noticeable during the day may become more noticeable at night.
2. Infrequent sources of noise and vibration not included above (such as infrequently operated/ seasonal operations, cleaning/maintenance activities, on-site deliveries/collections/transport or out-of-hours activities, emergency generators or pumps and alarm testing). Provide the information as required for main sources in (1), above, for each infrequent source. Section 2.2 (of this note) gives guidance on which sources should be included. 3. Identify the noise-sensitive sites and receptors (typically houses, parkland and open spaces regularly used by the public – schools, hospitals and commercial premises may be, depending upon the activities undertaken there) and any other points/boundaries where conditions have been applied by local authority officers or as part of a planning consent, and in particular provide details of: (a) The local environment:
provide an accurate map or scaled plan showing grid reference, nature of the receiving site, distance and direction from the installation boundary.
(b) Conditions/limits imposed that relate to other locations (that is, boundary fence or surrogate for nearest sensitive receptor):
any planning conditions imposed by the local authority relating to noise and vibration
other conditions imposed by agreements, for example, limits on operating times or specific technologies
any requirements of legal notices and the like relating to noise and vibration
any complaints received within the past three years and the outcome of any investigations into those complaints.
(c) The noise environment:
background noise level, if known (day/evening/night) L A,90,T
specific noise level (day/evening/night) LA eq,T and/or
ambient noise level (day/evening/night) LA eq,T , as appropriate
vibration data, which may be expressed in terms of the peak particle velocity (ppv) in mm s -1 or the vibration dose value (VDV) in m s –1.75 The noise–sensitive sites may not always be the nearest to the installation.
Parklands and open spaces may be noise sensitive by virtue of their use for leisure or similar activities, or if they are designated Sites of Special Scientific Interest or similar.
For noise, the terms used above are given the meaning as defined in BS 4142: 1997 Method for rating industrial noise affecting mixed residential and industrial areas (Reference 10). Refer to this for a full description. BS 4142: 1997 also gives advice on the appropriate reference periods. Information needed to determine BAT for noise and vibration
LEGAL BACKGROUND THE PROCESS Overview Application Consultation Determination Permit conditions Enforcement IPPC Version 2 September 2002 Environment Agency 9 “Worst case” situations and impulsive or tonal noise should be accounted for separately and not “averaged out” over the measurement period.
The Horizontal Noise Guidance Part 2 (Reference 17) gives advice on how to determine background noise levels when plant cannot be switched off. For vibration, the appropriate standard is BS6472:1992 Evaluation of human exposure to vibration in buildings 1 to 80 Hz (Reference 11).
4. Details of any environmental noise measurement surveys, noise modelling work or any other noise measurements undertaken relevant to the environmental impact of the installation, identifying:
the purpose/context of the survey
the locations where measurements were taken
the source(s) investigated or identified
the outcomes 5. Identify any specific local issues and proposals for improvements. 6. Describe the current or proposed position with regard to the techniques below, those described in Part 2 of this note: Noise Assessment and Control, or any others that are pertinent to the installation.
7. Demonstrate that the proposals are BAT, by confirming compliance with the indicative requirements, by justifying departures (as described in Section 1.2 and in the A1 Guide for Applicants) or alternative measures. The general requirements are outlined below. Indicative BAT requirements 1. The Operator should employ basic good practice measures to control noise. This should include adequate maintenance of any parts of plant or equipment whose deterioration may give rise to increases in noise (for example, maintenance of bearings, air handling plant, and the building fabric as well as specific noise attenuation measures associated with plant, equipment or machinery).
2. The Operator should also employ other noise control techniques to ensure that the noise from the installation does not give rise to reasonable cause for annoyance, in the view of the Regulator. In particular, the Operator should justify where Rating Levels (as defined in BS 4142: 1997) from the installation exceed the numerical value of the Background Noise Level (LA90,T) at the noise– sensitive receptors. Reasons why these levels may be exceeded in certain circumstances are given in Section 2.5.6 of this document.
3. In some circumstances “creeping background” (creeping ambient), described in Section 2.5.6, may be an issue.
Where this has been identified in pre–application discussions or in previous discussions with the local authority, the Operator should employ appropriate noise control techniques to minimise problems to an acceptable level within the BAT criteria. 4. Noise surveys, measurement, investigation (which can involve assessing sound power levels for individual items of plant) or modelling may be necessary for either new or existing installations, depending upon the potential for noise problems. Operators may have a noise management plan as part of their management system. More information on such techniques is given in Part 2 of this Note: Noise Assessment and Control.
The measurements and reporting should be carried out in accordance with BS4142: 1997 Method for rating industrial noise affecting mixed residential and industrial areas (Reference 10). BS: 7445:1991 Parts 1 to 3 Description and measurement of environmental noise also offers advice on measuring environmental noise (Reference 12). . Information needed to determine BAT for noise and vibration (cont.)
LEGAL BACKGROUND THE PROCESS Overview Application Consultation Determination Permit conditions Enforcement 10 Version 2 September 2002 Environment Agency Noise Regulation and Permitting 2.3 Consultation 2.3.1 Consultation between the Agency and local authorities Section 1.3 describes the agreements made for liaison between the Agency and local authorities with respect to noise.
The following information is specifically needed from the local authority officers to enable a coordinated approach to be taken:
planning conditions (as they relate to the installation) with relevant information relating to the rest of the installation and its planning history
information on any contravention of planning conditions and planning enforcement action
conditions relating to Noise Abatement Zones or other local issues
an overview of any complaint history, investigations made into the complaints and the outcomes
other local authority views and recommendations, views on Unitary Development and Local Plans, noise mapping requirements, Local Pollution Group guidance and the like.
A standard letter requesting this input is included in Appendix 3. The close dialogue between the regulators should lead to ready agreement on the appropriate determination of BAT. The consultation response could, however, propose very tight limits for the following reasons: 1. In planning, to meet local development plans or for other planning reasons, such limits may have been applied or are proposed.
For existing installations such conditions should already be met by the Operator. However, this may not always be the case. For new plant, IPPC should, in most cases, come to the same conclusion to provide adequate protection of the environment. Theoretically, a situation might arise in which the Agency believes that the balance of costs and benefits, or the balance of cross–media impacts, cannot justify such conditions. In these unusual circumstances, the IPPC Permit may contain conditions that are less strict than the planning conditions.
The conditions imposed via the planning regime would remain within the remit of planning teams in the local authorities, and subsequent regulation will fall on them.
The conditions and/or actions that the Agency intends to take to meet IPPC requirements will need to be clearly communicated to the local authority from the outset. Line management should be advised of any such situations. 2. The local authority proposes new noise–related requirements upon transfer to IPPC. Where possible within BAT, the Agency would work with the local authority to use the IPPC Permit to provide the best protection of the local environment. The Agency has the right to refuse to accept some or all of the local authority consultee response, but must provide robust documented justification for taking a different approach.
It may be possible to obtain additional justification from the local authority for the line it has taken, or to ask for a demonstration of how similar limits or conditions have been successfully applied elsewhere to a similar operation. 2.3.2 Other consultees In view of their expertise and involvement in local issues, the local authority statutory consultee response would normally be expected to provide the main input to inform the process of determination. There may, however, be other relevant factors to consider, such as the presence of a Site of Special Scientific Interest (SSSI), Special Areas of Conservation (SACs) or Special Protection Areas (SPAs).
Responses relating to these will come from various statutory and non-statutory consultees. As noise is an amenity issue, responses may also be received from members of the public. The Agency's responsibilities do not extend to controlling occupational noise, although there may be some areas of overlap between health and safety and environmental legislation. Consultation with statutory consultees
LEGAL BACKGROUND THE PROCESS Overview Application Consultation Determination Permit conditions Enforcement IPPC Version 2 September 2002 Environment Agency 11 2.4 Determination of BAT There are a number of steps in the process of determining BAT, the starting point for which is a comparison of the Applicant's submission and consultation responses (including those from members of the public) with the noise-related aspects of sector-specific guidance and this guidance note. They are: 1. Confirmation that there is sufficient information in the Operator's application 2. Assessment of risk – as a pointer to appropriate conditions 3.
Determination of installation-specific BAT for noise 4. Where appropriate, consideration of noise issues alongside other environmental impacts (see Reference 5). These steps are set out in detail below. Section 2.5 deals with the details of the Permit conditions.
1 Is there sufficient information?
The Operator will need to have addressed all the information requirements set out in Section 2.9 of the General or the Sector Technical Guidance Note or to have accounted for why these are not relevant to his application (see Section 2.2 of this document).
The amount of information supplied and the level of detail should be commensurate with the perceived risk (as gained from some knowledge of the previous noise history of the activity). The information supplied must, however, be sufficient to allow the actual level of risk to be determined. Depending on the circumstances, information relating to night-time or weekend operations, occasional noisy activities and types of noise generated (that is, where it is more likely to cause annoyance — impulse noise, tonal noise) is particularly important.
Where study of the application shows that more detailed information is required, which the Operator cannot reasonably produce within the determination period (for example, monitoring work), this might be obtained via an improvement condition.
There should be sufficient information to judge the level of noise risk (see Figure 2.2). For existing installations, it may be possible to make a judgement that the risk is low from the application and the consultees’ responses. For new installations or existing problem installations, information on the background levels and the noise levels generated will be needed.
Vibration should have been addressed, even if this is only a statement that this is not an issue (a definition of vibration is given in Part 2 Noise Assessment and Control (see Reference 17). As a guide, the requirement relates to vibration through a structure that affects sensitive receptors in the environment.
Vibration, which produces noise as in drumming or rattling, should be addressed for the purposes of the application as noise.
Noise assessment reports may have been submitted as part of the application. These may have been commissioned to fulfil other purposes, such as demonstrating compliance with planning consents or for a planning application. The case officer will need to decide how far these go in providing useful information, taking the following considerations into account, as appropriate: (see also Section 2.6.2 — monitoring requirements): - are they sufficiently up to date? - is the methodology and the British Standard, or other standard used, stated (including measurement points) and have the requirements of the relevant British Standards been complied with?
have details of equipment used and calibration been given? - have prevailing meteorological conditions and plant operations at the time of measurement been set out? - where modelling has been undertaken, has the model been identified and the inputs detailed? - have noise predictions been verified by later measurement? Part 2 to this note: Noise Assessment and Control (see Reference 17) describes an assessment methodology and the most commonly encountered British Standards, ISOs and other guidance relevant to this document. If in doubt, specialist advice should be sought through the Agency noise contacts.
Overview of the determination process Evaluation of the Operator's application
LEGAL BACKGROUND THE PROCESS Overview Application Consultation Determination Permit conditions Enforcement 12 Version 2 September 2002 Environment Agency Noise Regulation and Permitting 2 Assessment of risk A proportionate approach should be taken to the setting of Permit conditions depending upon the environmental risk posed by the installation. An assessment of the risk will assist in providing context for assessing BAT and in choosing the appropriate conditions in the Permit.
Figure 2.2 is a simple, rule–of–thumb method for categorising installations in terms of their environmental noise risk.
Figure 2.2 — Simple assessment of risk NOTE 1: When assessing whether a new installation is likely to pose a noise risk, it can be assumed that if the rating level of the installation noise is more than 5dB below the background level (both levels assessed or measured in accordance with BS 4142: 1997 (Ref.10)) it would not normally cause a problem. Where both levels are very low (that is, the background below about 30dB and the rating level below about 35dB) specific advice should be sought from the Agency.
Operator's application document
LA – discussions and consultation response
Site visits Inherently quiet operation Existing sites judged from the above.
New sites calculated (NOTE 1) Inherently noisy operation Impact on sensitive receptors is low (risk of harm is low as a result of good noise control) Inherently noisy operation Impact on sensitive receptors is high (risk of harm is high due to insufficient control of noise to protect receptors) Inherently noisy operation Impact on sensitive receptors is low (risk of harm is low due to remoteness of location) Considerations relating to risk — a combination of:
Is it an inherently noisy process?
Have complaints been received? (What was the cause? Recent or long–term?)
The noise level at sensitive receptors
Variability of the noise level, tonal or characteristic qualities
Previous work carried out to alleviate noise
Management style and awareness
Proximity of receptors (and their sensitivity) Considerations for conditions
Statements in the application incorporated in the Permit
Descriptive conditions, e.g.
those relating to containment or practices affecting containment (open doors etc) or control of tonal, impact or other noise characteristic
Improvement conditions for specific requirements to implement techniques referred to in the sector– specific guidance notes
A noise limit relating to the sensitive receptor, boundary or other location
Monitoring (check or survey) requirements Considerations for conditions
Improvement conditions, within BAT criteria, where noise levels are still too great Considerations for conditions
Improvement conditions, within BAT criteria, where noise is still too great Considerations for conditions
Residual BAT Note that these considerations are not prescriptive.
Any combination of conditions may be appropriate in particular situations. They are indicative of what may be a sensible, proportionate response in many situations. Refer to Section 2.5 for advice and guidance on setting Permit conditions.
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