21.171.35 • May 2022

Verkenning buitenlands geluidbeleid luchtvaart
Eindrapport

Aviation Consultants

Verkenning buitenlands geluidbeleid luchtvaart
Eindrapport

Geschreven voor
Ministerie van Infrastructuur & Waterstaat
DG Luchtvaart en Maritieme Zaken

To70
PO Box 85818
2508 CM The Hague, The Netherlands
tel. +31 (0)70 3922 322
Email: info@to70.nl

Auteurs
Bernard Snaauw
Ruud Ummels

Den Haag, May 2022

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Inhoudsopgave
Synthese ......................................................................................................................................................................................... 4
1

Inleiding .................................................................................................................................................................................. 5
1.1 Aanleiding ....................................................................................................................................................................... 5
1.2 Doelstelling..................................................................................................................................................................... 5
1.3 Vraagstelling................................................................................................................................................................... 5
1.4 Afbakening ..................................................................................................................................................................... 5
1.5 Leeswijzer ........................................................................................................................................................................ 6

2

Internationale context ........................................................................................................................................................ 7
2.1 ICAO ................................................................................................................................................................................. 7
2.2 EU

3

................................................................................................................................................................................. 8

Normstelling en grenswaarden ..................................................................................................................................... 11
3.1 Situatie in Nederland ................................................................................................................................................. 11
3.2 Ervaringen in het buitenland .................................................................................................................................. 11

4

Rol van de sector en reductiedoelstelling .................................................................................................................. 13
4.1 Situatie in Nederland ................................................................................................................................................. 13
4.2 Ervaringen in het buitenland .................................................................................................................................. 13

5

Ruimtelijke ordeningsmaatregelen .............................................................................................................................. 14
5.1 Situatie in Nederland ................................................................................................................................................. 14
5.2 Ervaringen in het buitenland .................................................................................................................................. 14

6

Hinderbeperkende maatregelen................................................................................................................................... 16

7

Actuele gegevens en inzichten ...................................................................................................................................... 17

8

Individuele rechtsbescherming ..................................................................................................................................... 18

Landenrapportage – Detailinformatie per land ............................................................................................................... 19

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Verkenning buitenlands geluidbeleid luchtvaart
Synthese

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1

Inleiding

1.1

Aanleiding
De Luchtvaartnota 2020-2050 is in november 2020 vastgesteld door het kabinet. Hierin worden doelen
gesteld ten aanzien van het verbeteren van de leefomgevingskwaliteit rondom luchthavens, waaronder
het terugbrengen van geluidhinder. Het doel is om te komen tot een stelsel van normen en maatregelen
dat gezamenlijk de hinder rond de luchthavens aantoonbaar vermindert en goed aansluit bij de ervaren
hinder van de omwonenden. In het kader van de voorbereidingen op de beleidsontwikkeling hiervoor,
heeft IenW behoefte aan nader inzicht hoe in het buitenland wordt omgegaan met het beleid ten aanzien
van vliegtuiggeluid.

1.2

Doelstelling
De doelstelling van deze verkenning is te leren van de ervaringen in het buitenland op het gebied van
geluidbeleid voor de luchtvaart.

1.3

Vraagstelling
In deze synthese wordt specifiek op een zevental aspecten met betrekking tot het beleid ten aanzien van
vliegtuiggeluid ingegaan:
1.

Welke wijze van normstelling wordt in het buitenland gehanteerd ten aanzien van geluidbelasting
en hinder? Welke grenswaarden horen bij deze normstelling?

2.

Wordt hierbij geboden aan de sector om zich te ontwikkelen? Op welke wijze?

3.

Zijn er in het buitenland sturingsinstrumenten die worden gebruikt om de geluidbelasting en/of
hinder als gevolg van luchtvaart te beperken?

4.

Welk ruimtelijk ordeningsbeleid is gerelateerd aan de geldende normen? Welke maatregelen worden
hierbij genomen, in welke verhoudingen (isolatie, uitkoop, verhuisregelingen)?

5.

Welke instrumenten worden ingezet om hinder te beperken? Worden deze vanuit overheidswege
ingezet/opgelegd, of heeft de sector vrijheid om de inzet hiervan te bepalen?

6.

Hoe gaat men in het buitenland om met het beschikbaar komen van actuele gegevens (bijvoorbeeld
vliegtuigprestatiegegevens) of nieuwe inzichten (bijvoorbeeld naar aanleiding van modelvalidaties)
in het vliegtuiggeluidbeleid?

7.

Hoe gaat men in het buitenland om met individuele rechtsbescherming van omwonenden bij het
overschrijden van grenswaarden?

1.4

Afbakening
De verkenning richt zich op acht landen; Duitsland, Frankrijk, Verenigd Koninkrijk, Italië, Zweden,
Noorwegen, Zwitserland en Australië. De verkenning omvat zowel het beleid ten aanzien van hubs als
regionale luchthavens (die vergelijkbaar zijn met de Nederlandse luchthavens van nationale betekenis).
Met uitzondering van Australië kennen alle landen Europese regelgeving en zijn daardoor goed
vergelijkbaar met Nederland. Duitsland, Frankrijk en het Verenigd Koninkrijk zijn door het ministerie
geselecteerd aangezien die landen een vergelijkbare hub als Nederland hebben. Noorwegen, Zweden en
Zwitserland zijn toegevoegd omdat deze landen vaak vooroplopen in milieubeleid.

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1.5

Leeswijzer
Deze synthese vat de resultaten van de verkenning samen. Hoofdstuk 2 geeft de internationale context
van de wet- en regelgeving voor vliegtuiggeluid. Vervolgens worden in de hoofdstukken 3 tot en met 8
de onderzoeksvragen een voor een behandeld. De landenrapportage geeft voor ieder land afzonderlijk
detailinformatie en vermeldt welke organisaties To70 heeft gesproken voor dit onderzoek.

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2

Internationale context
De wet- en regelgeving voor vliegtuiggeluid bestaat uit een set kaders op internationaal (ICAO en EU) en
nationaal niveau. Dit hoofdstuk geeft de belangrijkste internationale context weer.

2.1

ICAO
ICAO (International Civil Aviation Organization) is een intergouvernementele organisatie die wordt
gefinancierd en geleid door 193 nationale overheden om hun diplomatie en samenwerking op het gebied
van luchtvervoer te ondersteunen. ICAO stelt internationale standaarden, ‘recommended practices’ en
procedures vast met betrekking tot de technische gebieden van de luchtvaart, inclusief vliegtuiggeluid.
De standaarden worden, zodra ze zijn aangenomen, door elke ICAO-lidstaat in zijn eigen land van kracht.
Het belangrijkste overkoepelende beleid voor vliegtuiggeluid is de ‘Balanced Approach to Aircraft Noise
Management’ (ICAO Doc 9829). Deze leidraad is vastgesteld tijdens de 33ste ICAO Assembly in 2001.
The goal is to address noise problems on an individual airport basis and to identify the noise-related
measures that achieve maximum environmental benefit most cost-effectively using objective and
measurable criteria.
Het doel van de Balanced Approach is om de geluidproblemen van een luchthaven te identificeren en
vervolgens verschillende maatregelen te verkennen om de hinder te verminderen. Deze maatregelen zijn
onderverdeeld in vier categorieën en dienen in samenhang bestudeerd te worden om op de meest
kosteneffectieve manier een maximaal milieuvoordeel te behalen.
1.

Vermindering van het geluid aan de bron

2.

Ruimtelijke ordening en ontwikkeling

3.

Operationele maatregelen

4.

Exploitatiebeperkingen

Geluid aan de bron
De eerste pijler van de Balanced Approach is het reduceren van vliegtuiggeluid aan de bron. Door middel
van geluidcertificering worden limieten gesteld aan de geluidsproductie van vliegtuigen. Volgens een
vaste voorgeschreven procedure wordt bepaald hoeveel geluid vliegtuigen maken. Het totale gemeten
geluidniveau (de som van drie meetwaarden) moet voldoen aan de geluidslimieten afhankelijk van het
maximale startgewicht, om binnen een bepaalde geluidscategorie te vallen. Zwaardere vliegtuigen
mogen meer geluid maken dan lichtere vliegtuigtypes. Omdat vliegtuigen lange tijd dienstdoen,
bemoeilijkt dit de snelle introductie van stillere vliegtuigen. In de afgelopen tientallen jaren zijn de
geluidslimieten aangescherpt: van “hoofdstuk 2” (chapter 2) limieten in 1973, “hoofdstuk 3” in 1978,
“hoofdstuk 4” in 2006 (10 dB(A) stiller dan hoofdstuk 3), naar de huidige “hoofdstuk 14” limieten in 2017
(7 dB(A) stiller dan hoofdstuk 4). Doordat regelgeving het gebruik van stillere vliegtuigen stimuleert,
wordt bij het ontwerp van vliegtuigen met technologische ontwikkeling geprobeerd om de hoeveelheid
geluid die een vliegtuig maakt te verminderen. Hierdoor neemt ook het geluid rond luchthavens af.

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Ruimtelijke ordening en ontwikkeling
Ruimtelijke ordening is een middel om ervoor te zorgen dat de activiteiten in de buurt van luchthavens
verenigbaar zijn met de luchtvaart. Het belangrijkste doel is om niet compatibel landgebruik (zoals
woningen en scholen) verder weg van de luchthaven te plaatsen, en compatibele landgebruik (zoals
industrie en commercieel gebruik) juist aan te moedigen. Daarnaast kunnen overheden de geluidhinder
tot een minimum te beperken door zones vast te stellen waar beperkingen gelden om geluidgevoelige
gebouwen, zoals woningen, te ontwikkelen. Ook kan worden gedacht aan mitigerende maatregelen zoals
grondaankoop of geluidisolatie. Ruimtelijke ordening is ook essentieel om ervoor te zorgen dat de winst
die wordt behaald door het verminderde geluid van de nieuwste generatie vliegtuigen niet teniet wordt
gedaan door verdere woningbouw rond luchthavens, zo stelt ICAO.
Operationele maatregelen
Voorbeelden van operationele maatregelen die bijdragen aan het verminderen van de geluidbelasting
zijn het gebruik van preferentiële start- en landingsbanen, het optimaliseren van de ligging van
vliegroutes en het introduceren van start- en landingsprocedures, zoals glijvluchtnaderingen. Deze
maatregelen zijn gericht op het reduceren van het vliegtuiggeluid zonder dat deze negatieve effecten
hebben voor de vliegveiligheid of luchthavencapaciteit.
Exploitatiebeperkingen
De meest strikte vorm van maatregelen om de geluidoverlast rondom luchthavens te beperken zijn
exploitatiebeperkingen. Exploitatiebeperkingen zijn maatregelen waarbij de toegang van vliegtuigen tot
een luchthaven wordt beperkt. Een voorbeeld is vliegtuigen die veel geluid maken niet meer toe te laten
op bepaalde luchthavens. Deze zijn doorgaans gebaseerd op de certificatie geluidwaarden van
vliegtuigen. Andere voorbeelden zijn bijvoorbeeld een nachtsluiting of geluidsquota/budgetten.
Exploitatiebeperkingen zouden volgens ICAO pas overwogen moeten worden als andere maatregelen
qua kosten en effectiviteit onvoldoende resultaat opleveren.
2.2

EU
De EU werkt ook aan het definiëren van de aanpak voor een gemeenschappelijk luchtvaartbeleid in
Europa. De EU heeft verschillende richtlijnen uitgevaardigd met betrekking tot milieukwesties, onder
meer voor de regulering van geluidsnormen voor vliegtuigen. Lidstaten zijn verplicht om te voldoen aan
de eisen van de richtlijnen en deze op te nemen in de nationale wetgeving.
Richtlijn 92/14/EEG verbood Hoofdstuk 2-vliegtuigen vanaf 1 april 2002 om in de EU te landen.
Richtlijn 2002/49/EC inzake de evaluatie en de beheersing van omgevingslawaai (“Environmental Noise
Directive”) schrijft voor dat de ‘competent authority’ iedere vijf jaar een actieplan maakt voor luchthavens
met meer dan 50.000 vliegtuigbewegingen groothandelsverkeer. Belanghebbenden hebben de
mogelijkheid tot inspraak op dit actieplan. De richtlijn heeft ook tot doel de methoden voor het bepalen
van geluid in de hele EU te harmoniseren, maar bevat geen grenswaarden.

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Sinds de introductie van Richtlijn 2002/49/EC zijn lidstaten verplicht het aantal mensen dat blootgesteld
wordt aan een geluidbelasting ≥ 55 dB(A) Lden1 en ≥ 50 dB(A) Lnight2 te rapporteren voor de geluidbronnen
uit de richtlijn (wegen, spoorwegen, luchthavens en industrie). Op basis van deze data maakt de European
Environment Agency een rapportage en stelt de achterliggende data beschikbaar. Dit stelt ons in staat de
geluidsituatie van verschillende geluidbronnen en van luchthavens onderling met elkaar te vergelijken.
Onderstaande figuur laat het totaal aantal mensen in Europa blootgesteld aan ≥ 55 dB(A) Lden zien voor
de eerste drie END rapportages, voor de gebieden die vallen onder strategische geluidsbelastingkaarten.
Hieruit komt duidelijk naar voren dat wegverkeer de meest dominante bron van omgevingslawaai is in
Europa.

* Opgemerkt wordt dat lidstaten gegevens over de 4e karteringsronde in juli 2022 moeten publiceren, en
daarom ontbreken in bovenstaande figuur.
Onderstaande figuur laat de blootstellingsgegevens rond luchthavens voor het jaar 2017 zien. Voor
Nederland wordt alleen data van Amsterdam Airport Schiphol data gerapporteerd. Data voor Franse en
Griekse luchthavens is niet gerapporteerd.
Deze figuur laat zien dat rond de luchthavens van Londen Heathrow, Lissabon, de oude luchthaven van
Berlijn en Frankfurt meer mensen worden blootgesteld aan ≥ 55 dB(A) Lden in vergelijking tot Schiphol.

1

Lden staat voor Level day, evening, night, ofwel het tijdgewogen jaargemiddelde geluidniveau buitenshuis in de dag,

de avond en de nachtperiode. 's Avonds (19.00 tot 23.00 uur) geldt er een correctie van +5 dB en 's nachts (23.00 tot
07.00 uur) van +10 dB.
2

Lnight staat voor het over alle nachtperioden van een jaar gemiddelde geluidniveau buitenshuis, waarbij de

nachtperiode loopt van 23.00 tot 07.00 uur.
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EU Verordening 598/2014 past regels en procedures toe met betrekking tot de invoering van geluid
gerelateerde exploitatiebeperkingen op EU-luchthavens. Deze verordening verving een eerdere richtlijn,
2002/30, die voorschreef dat ICAO’s Balanced Approach zou worden gevolgd wanneer de invoering van
geluid gerelateerde exploitatiebeperkingen op EU-luchthavens werd overwogen. De nieuwe verordening
is specifieker in de rechten en verantwoordelijkheden van de belanghebbenden tijdens het
geluidsbeoordelingsproces, en voorziet in een nieuwe en bredere definitie van wat een
exploitatiebeperking inhoudt.
Wanneer een nieuwe exploitatiebeperking wordt overwogen, vereist EU598/2014 dat een gedefinieerde
doelstelling wordt vastgesteld en moet worden aangetoond waarom andere maatregelen binnen de
Balanced Approach (die de capaciteit niet zouden beperken) de doelstelling niet zouden bereiken. Het
schrijft ook een proces voor voor de evaluatie van de kosteneffectiviteit van de voorgestelde
exploitatiebeperkingen. Over nieuwe beperkingen moet overleg worden gepleegd en voor de invoering
ervan moet een implementatietermijn worden gegeven.
EU598/2014 sorteert voor op de invoering van geluidsbeperkingen om het aantal marginaal conforme
Hoofdstuk 3-vliegtuigen te verminderen (in de richtlijn gedefinieerd als luchtvaartuigen die met een
cumulatieve marge van niet meer dan 5 dB(A) voldoen aan de certificeringsgrenzen van hoofdstuk 3). Het
verbiedt de invoering van beperkingen die erop gericht zijn het aantal vliegtuigen te verminderen dat aan
de Hoofdstuk 4-norm voldoet.

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3
3.1

Normstelling en grenswaarden
Situatie in Nederland
In Nederland vormt de Wet luchtvaart met de onderliggende regelgeving het nationale kader voor de
vergunningverlening voor de luchtvaart en voor de bescherming van de omgeving tegen
luchtvaartgeluid. Dit is voor regionale luchthavens vastgelegd in luchthavenbesluiten en voor Schiphol in
het Luchthavenindelingbesluit Schiphol (LIB) en het Luchthavenverkeerbesluit Schiphol (LVB).
De regels en grenswaarden voor het vliegverkeer geven een milieugebruiksruimte per luchthaven. De
regels en grenswaarden verschillen per luchthaven. Voorbeelden voor de regels en grenswaarden zijn:
•

Een maximumaantal vliegtuigbewegingen

•

Regels aan het baan- en luchtruimgebruik

•

Grenswaarden voor de geluidbelasting op jaarbasis

De grenswaarden voor geluid, ofwel geluidruimte, zijn gebaseerd op geluidberekeningen met een
voorgeschreven rekenmodel. De berekende geluidbelasting op basis van het feitelijke vliegverkeer wordt
met hetzelfde rekenmodel aan de grenswaarden getoetst.
In de Wet luchtvaart is voor Schiphol geregeld dat bij een aanpassing van een besluit het
beschermingsniveau voor de omgeving nooit lager mag zijn dan dat van het eerste besluit. Dit
beschermingsniveau is voor geluid uitgedrukt in onder andere het aantal woningen binnen de
58 dB(A) Lden-contour en het (berekend) aantal ernstig gehinderden binnen de 48 dB(A) Lden-contour.
Hiermee maken we in Nederland naast een geluidbelastingindicator, ook gebruik van een
geluidhinderindicator.
De Inspectie Leefomgeving en Transport (ILT) ziet erop toe dat de luchthavens, luchtvaartmaatschappijen
en de luchtverkeersleiding binnen de vastgestelde milieunormen en milieuregels blijven.
3.2

Ervaringen in het buitenland
De Europese Commissie schrijft in de Environmental Noise Directive (Richtlijn 2002/49/EC) het gebruik
van Lden en Lnight voor bij de evaluatie en de beheersing van omgevingslawaai. Deze richtlijn ziet toe op de
wijze waarop strategische geluidbelastingkaarten en actieplannen tot stand komen (zie hoofdstuk 2.2). De
END schrijft geen grenswaarden of regels voor. Het is aan de lidstaten zelf om normen vast te leggen in
nationale wet- en regelgeving. Daarbij staat het de lidstaten vrij om alternatieve of aanvullende
geluidbelasting- en/of geluidhinderindicatoren te gebruiken.
De verkenning laat zien dat ieder land andere normen voor de vergunningverlening en de bescherming
van de omgeving tegen luchtvaartgeluid hanteert. De belangrijkste overeenkomst is dat alle landen
daarbij in ieder geval wel een gemiddelde geluidbelasting gebruiken. Maar zowel de periode waarover
wordt gemiddeld verschilt (van het gehele jaar tot een gemiddelde zomerdag), als de drempelwaarden
die worden gehanteerd. Naast Lden (in Frankrijk, Noorwegen en Zweden), zien we ook het gebruik van het
equivalente geluidniveau LAeq,dag en LAeq,nacht (Duitsland en het Verenigd Koninkrijk), en enkele land-

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specifieke geluidmaten, zoals ANEF in Australië, Lrk in Zwitserland en LVA in Italië. Dit bemoeilijkt de
onderlinge vergelijking.
De meeste landen hanteren naast primaire geluidmaten, ook secundaire geluidmaten, zoals bijvoorbeeld
de number above threshold (Nxx) geluidcontouren, welke zijn gebaseerd op het aantal keer dat geluid
boven een bepaalde drempelwaarde uitkomt. Dergelijke contouren dienen ter informatie in het beleid en
de communicatie.
In de onderzochte landen wordt de geluidbelasting wel gemonitord, maar niet gehandhaafd. In enkele
landen hebben overschrijdingen plaatsgevonden van de vastgestelde geluidsruimte voor ruimtelijke
ordening waarbinnen een luchthaven mag opereren, waarna de luchthaven een plan moest maken hoe
de geluidbelasting in de toekomst weer kan afnemen. Er is er geen enkel land met een norm voor het
aantal (ernstig) gehinderden of slaapverstoorden. Wel zijn er exploitatiebeperkingen, zoals een quota
count (in het Verenigd Koninkrijk), zie hiervoor de landenrapportage.

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4

Rol van de sector en reductiedoelstelling
4.1

Situatie in Nederland

Het is in Nederland aan de sector zelf om binnen de grenswaarden voor de geluidbelasting te blijven. Het
uitgangspunt van een geluidruimte is, dat als het geluidniveau per vliegbeweging lager is, er meer
vliegbewegingen in de geluidruimte passen. Omgekeerd geldt dit ook, als het geluidniveau per
vliegbeweging hoger is, dan passen er minder vliegbewegingen in de geluidruimte.
In de Luchtvaartnota heeft het kabinet doelen gesteld ten aanzien van het terugbrengen van de
geluidhinder rondom luchthavens. Minder negatieve gezondheidseffecten zijn een voorwaarde voor de
toekomstige ontwikkeling van de luchtvaart. Alleen als de luchtvaart er aantoonbaar in slaagt om stiller en
schoner te worden, dan kan groei worden gerealiseerd.
4.2

Ervaringen in het buitenland

Geen van de onderzochte landen heeft een concrete hinderreductie doelstelling voor het terugbrengen
van de geluidhinder rondom luchthavens. Alleen in de regio Parijs gold in het verleden een doelstelling,
maar die is inmiddels behaald. Het is in alle onderzochte landen aan de sector om zich binnen de, voor
ruimtelijke ordening vastgestelde, geluidcontour te ontwikkelen. Als het geluidniveau per vliegbeweging
lager is passen er meer vliegbewegingen in de geluidruimte. Overheden gaan er vaak (ongeschreven) van
uit dat als er een knelpunt wordt gesignaleerd, de sector zelf het initiatief neemt om maatregelen te
treffen om zich in te zetten dit knelpunt op te lossen. Hierbij hanteren luchthavens de Balanced Approach
zoals voorgeschreven in Verordening 598/2014. Dat dit effect resulteert zien we vooral terug in het feit
dat door de jaren heen meer vliegtuigbewegingen konden worden geaccommodeerd binnen eenzelfde
(of zelfs lager wordende) jaargemiddelde geluidbelasting. We zien echter ook verschillende voorbeelden
waar de geluidbelasting lokaal groter is dan afgesproken (waaronder in Duitsland, Italië en Australië)
zonder dat dit gevolgen heeft voor de sector. Dat komt omdat de overheid in de onderzochte landen,
zoals in het vorige hoofdstuk aangegeven, de geluidbelasting niet handhaaft.

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5

Ruimtelijke ordeningsmaatregelen
5.1

Situatie in Nederland

Voor de ruimtelijke ontwikkelingen rondom luchthavens zijn gebieden vastgesteld waar beperkingen
gelden om geluidgevoelige gebouwen, zoals woningen, toe te laten. Onderstaande tabel geeft een
overzicht van de beperkingen zoals die voor de verschillende luchthavens in Nederland gelden.

Categorie

Geen nadere afweging

Niet toegelaten behoudens

Luchthavens

nodig

uitzonderingen

Schiphol (LIB)

Buiten de buitengrens LIB 5-

Binnen LIB 4-gebied4.

Uitzonderingen

•

Bouwplan of

gebied3. Voor

herstructurering <25

woningbouwlocaties binnen

woningen;

bestaand stedelijk gebied is

bouwplan

buiten de grens van het LIB 4-

lintbebouwing <3

gebied geen afweging nodig.

woningen
•

Verplaatsing binnen
beperkingengebied

•

Bedrijfswoningen

•

Opvullen open plek

Andere

Buiten 48 dB(A) Lden-contour.

Binnen 56 dB(A) Lden, zoals

burgerluchthaven

In het gebied binnen de

hieronder genoemd.

(Besluit

48 dB(A) Lden en buiten de

burgerluchthavens)

56 dB(A) Lden -contour, mag

aanwezige

maar hoeft de provincie geen

bebouwing

beperkingen in te stellen.

(militaire

in bebouwing
•

Vervanging van

luchthaven:
aanwezige nietgeluidgevoelige
bebouwing)

5.2

Ervaringen in het buitenland

Ruimtelijkeordeningsbeleid wordt door luchthavens gezien als een belangrijke maatregel om te
voorkomen dat er nieuwe woningen worden gebouwd in gebieden waar geluidhinder optreedt. Alle
landen hebben dan ook zones vastgesteld waar niet gebouwd mag worden, of alleen onder specifieke
voorwaarden. Gedetailleerde informatie per land staat in de landenrapportage.
In de meeste landen, worden daarnaast ook isolatiemaatregelen voorgeschreven én genomen om de
geluidniveaus binnenshuis te verlagen. In het Verenigd Koninkrijk verwacht de overheid dat als de
operatie van de luchthaven verandert waarbij de geluidbelasting met meer dan 3 dB LAeq,dag toeneemt en
de geluidbelasting meer dan 63 dB LAeq,dag bedraagt, de sector compensatie aanbiedt aan omwonenden.

3

Oude 20 Ke, bouwen binnen bestaand stedelijk gebied, motiveringsplicht externe veiligheid voor álle ontwikkelingen

4

58 Lden, max 25 woningen per bouwplan

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De meeste landen passen eens in de vijf of tien jaar de zones aan. In Duitsland worden de zones alleen
aangepast als het verschil meer dan 2 dB(A) Lday of Lnight bedraagt ten opzichte van de bestaande contour.
Dit betekent concreet dat het verkeer meer dan 50% zou kunnen toenemen zonder dat de ruimtelijke
ordeningscontouren worden aangepast.
Uit de verkenning constateren we dat in de onderzochte landen een hogere geluidbelasting wordt
toegestaan dan in Nederland voor woningbouw of andere bestemmingen.
Ondanks de ruimtelijke ordeningsmaatregelen, zien we in de meeste landen dat de lokale autoriteiten
alsnog de nieuwbouw van geluidgevoelige bestemmingen in deze zones toestaan en waardoor nieuwe
mensen blootgesteld worden aan vliegtuiggeluid. Zo worden er, als onderdeel van het ruimtelijke
ordeningsbeleid in Noorwegen, rond verkeersknooppunten (zoals luchthavens) juist woningen gebouwd,
zelfs in gebieden waar de geluidbelasting van luchtvaart meer dan 62 dB(A) Lden kan bedragen.

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6

Hinderbeperkende maatregelen
Net als in Nederland zijn het vooral de luchthavens met meer dan 50.000 vliegtuigbewegingen die ICAO’s
Balanced Approach hanteren voor het systematisch identificeren en beheersen van geluidhinder.
Overheden gaan er hierbij vaak (ongeschreven) van uit dat de luchthaven hierin het initiatief neemt.
Welke maatregelen het meest effectief hangt af van de lokale situatie. Op hoofdlijnen wordt ingezet op:
1.

Vermindering van het geluid aan de bron
Vlootvernieuwing heeft op nagenoeg alle luchthavens geleid tot groeimogelijkheden binnen de
bestaande geluidruimte. Vlootvernieuwing wordt, vooral op grotere luchthavens, vaak gestimuleerd
door differentiatie van landingsgelden;

2.

Ruimtelijke ordening en ontwikkeling
De rol die luchthavens hierin spelen is veelal beperkt tot isolatieprogramma’s en/of
omgevingsfondsen om de leefomgeving nabij luchthavens te verbeteren. Daarnaast vindt
afstemming plaats met lokale planningsautoriteiten over zonering, maar zoals in het vorige
hoofdstuk aangegeven komt het voor dat er toch gebouwd wordt in deze zones.

3.

Operationele maatregelen
Hier dient onderscheid te worden gemaakt tussen baangebruik en route optimalisaties. Vooral
luchthavens met meerdere banen maken gebruik van preferentieel baangebruik, zowel bij parallelle
banen (waar bijvoorbeeld gedurende een deel van de dag één baan wordt gebruikt voor starts en
gedurende het andere deel van de dag de andere baan), als bij banenstelsels met kruisende banen
(waar specifieke banen gesloten zijn gedurende een deel van de dag (of nacht) of waarbij het
baangebruik per dag in de week verschilt). Qua vliegroutes zetten sommige luchthavens in op
spreiding, andere op concentratie. Door moderne navigatiemiddelen is het steeds vaker mogelijk
routes te ontwerpen die de bebouwde omgeving mijden. Ook wordt in alle landen ingezet op
andere start- of landingsprocedures, zoals glijvluchtnaderingen of steilere naderingen. Baan- en/of
routeoptimalisaties kunnen echter resulteren in nieuw gehinderden, of negatieve effecten hebben
op de werklast voor verkeersleiders of voor de luchthavencapaciteit. Dit kan een reden zijn voor
luchthavens om bepaalde operationele maatregelen niet te implementeren.

4.

Exploitatiebeperkingen
De meest strikte maatregel om geluidoverlast rondom luchthavens te beperken komt in alle
onderzochte landen voor. Zo zijn er veel luchthavens met een nachtsluiting, kan er een maximaal
aantal vliegtuigbewegingen per uur gelden, of zijn er beperkingen voor bepaalde vliegtuigtypes.
Drie van de luchthavens in Londen hebben een quota count systeem voor de nacht. Het zijn
overwegend overheden die dergelijke maatregelen opleggen, waarbij de uitvoering van de
beperking bij de luchthaven ligt. Het valt op dat nauwelijks gebruik wordt gemaakt van analyses om
de kosten en baten van dergelijke maatregelen te bepalen.

Meer detail over de maatregelen die in de verschillende landen worden genomen is terug te vinden in de
landenrapportage. Uit de verkenning komt duidelijk naar voren dat de maatregelen die genomen worden
zeer afhankelijk zijn van de lokale situatie.

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7

Actuele gegevens en inzichten
Uit de verkenning blijkt dat er verschillen tussen landen zijn in hoe er wordt omgegaan met het
beschikbaar komen van actuele gegevens of nieuwe inzichten.
Zo worden in het Verenigd Koninkrijk, Noorwegen en Zwitserland metingen gebruikt om geluidmodellen
te kalibreren. In Zwitserland wordt gebruik gemaakt van metingen uit de jaren negentig, terwijl er rond de
Londense luchthavens een continu meetprogramma loopt. In Noorwegen voert men metingen uit als er
nieuwe vliegtuigtypes of helikopters worden ingezet om vervolgens op te nemen in de daar gebruikte
modellen. In landen als Frankrijk, Italië en Australië wordt gebruik gemaakt van de standaard geluid- en
prestatiegegevens beschikbaar uit de daar gehanteerde geluidmodellen.
In het Verenigd Koninkrijk, Zwitserland en Zweden vinden jaarlijks controleberekeningen plaats door de
overheid. In Zweden met als doel om te bepalen of meer woningen geïsoleerd dienen te worden.
In meerdere landen, onder andere Duitsland, Frankrijk, Italië en Australië, worden geluidcontouren eens
per vijf of tien jaar bepaald. Deze contouren worden vooral gebruikt voor de ruimtelijke ordening.
Hierdoor gebruikt men ook maar eens in de vijf of tien jaar nieuwe gegevens of de laatste inzichten.
Uit de verkenning blijkt niet dat overheden hun beleid aanpassen in verband met het beschikbaar komen
van actuele gegevens of inzichten.

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8

Individuele rechtsbescherming
In Nederland worden de regels en grenswaarden voor het vliegverkeer gehandhaafd door ILT. Het
verleden leert dat er nauwelijks overschrijdingen zijn geweest, en dat wanneer deze optreden, de
inspectie hiertegen optreedt. In het geval dat dit niet zou gebeuren kunnen omwonenden naar de rechter
stappen met een verzoek tot handhaving.
In de onderzochte landen wordt de geluidbelasting wel gemonitord, maar niet gehandhaafd. Aangezien
het systeem van grenswaarden en handhaving niet bestaat, zijn er ook weinig aangrijpingspunten voor
rechtsbescherming. Wel is er in verschillende landen een vorm van rechtsbescherming bij isolatie. Als
blijkt dat de geluidbelasting hoger is dan aangenomen, dan wordt van de luchthaven verwacht dat
alsnog geïsoleerd wordt of op een andere manier compensatie plaatsvindt.
Bij de luchthaven van Frankfurt hebben omwonenden een aanklacht tegen de deelstaat Hessen
ingediend over een overschrijding van de geluidbelasting. Dit is het gevolg van ander baangebruik dan
eerder aangenomen. De rechter heeft bepaald dat hij de aanklacht niet in behandeling neemt in verband
met de coronapandemie. Dit geeft de luchthaven (meer) tijd om met een oplossing te komen.

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21.171.35

Verkenning buitenlands geluidbeleid luchtvaart
Landenrapportage – Detailinformatie per land

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19

Contents
•

Germany

•

France

•

United Kingdom

•

Australia

•

Switzerland

•

Italy

•

Norway

•

Sweden

•

Policy overview of researched countries

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20

Country context - 1
Germany
Country context

•

Germany is one of the largest countries in Europe

•

As a federal system, Germany consists of 16 federal states
whose state governments partly take on their own state
duties

•

Each state has the power to determine the importance of air
traffic (balance between health impact and economical
benefit) within the national legislation boundaries
• Leipzig Airport is for example an important logistical hub,
operating mainly at night. Local State has special
legislation in place to accommodate this different from
other states

•

It has over 80 airports, from which 16 are international
airports

•

Largest airports are Frankfurt, Munich, and Dusseldorf
• Frankfurt number of passengers in 2019: 70 million
• Munich number of passengers in 2019: 48 million
• Dusseldorf number of passengers in 2019: 25 million

•

German also relies on some busy domestic routes, such as
Frankfurt-Berlin and Munich-Berlin

Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit enforcement

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Country context - 2
Germany

The designated competent authorities in Germany are:

Country context

Land

Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit enforcement

Flughäfen im
Anwendungsbereich
der Verordnung
(50.000 zivile
Flugbewegungen)

Zuständigkeit für Verordnung
(EU) Nr. 598/2014

Baden-Württemberg Flughafen Stuttgart

Ministerium für Verkehr und
Infrastruktur Baden-Württemberg
Bayern
Flughafen München
Bayerische Staatsministerium des
Flughafen Nürnberg
Inneren, für Bau und Verkehr
Brandenburg
Verkehrsflughafen Berlin Gemeinsame Obere
Brandenburg
Luftfahrtbehörde BerlinBrandenburg
Hamburg
Flughafen Hamburg
Behörde für Wirtschaft, Verkehr
und Innovation
Hessen
Flughafen Frankfurt
Hessisches Ministerium für
Wirtschaft, Energie, Verkehr und
Wohnen
Niedersachsen
Flughafen Hannover
Niedersächsisches Ministerium für
Wirtschaft, Arbeit, Verkehr und
Digitalisierung
Nordrhein-Westfalen Flughafen Düsseldorf
Ministerium für Verkehr des
Flughafen Köln
Landes Nordrhein-Westfalen
Sachsen
Flughafen Leipzig/Halle Sächsisches Staatsministerium für
Wirtschaft, Arbeit und Verkehr

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How is noise impact measured? Are there any noise limits?
Germany

•

Country context
Measurement and noise limits
Government goals

•

The establishment of the noise protection zones are a
responsibility of the federal government and must be reported
to the national government. An update of the protection zones
is required every 10 years.

•

The contours are made based on LAeq and Number Above
Threshold (NAT) using LA,max. The contours are made based on
the average 6 months future forecast of flights movements.

•

The nighttime protection zone is created by the union of the
LAeq night contour with the number above threshold (NAT) with
the LA,max values stated in the table.

•

The German Civil Aviation Law (Section 19a) obliges the
operators of civil airports to set up and operate installations for
the measurement of noise near the airport. The operation of
these installations is described in DIN 45643 “Measurement and
Assessment of Aircraft Noise”

•

Noise measurement stations are placed along the flight paths
and in residential areas within or beside the protection zones
and data open to the public via
https://franom.fraport.de/franom.php

Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit enforcement

Zone

The German Act for Aircraft Noise Protection from 2007
(https://www.bmuv.de/fileadmin/bmuimport/files/english/pdf/application/pdf/flulaermg_en.pdf)
mandates commercial and military airports to have noise
protections zones: two daytime zones and one nighttime zone
(if applicable)

Daytime protection
zone 1
(06:00 – 22:00)
Daytime protection
zone 2
(06:00 – 22:00)
Night-time
protection zone
(22:00 – 06:00)

Existing civilian
airfield
65 dB(A) LAEQ Day

New/expanding
civilian airfield
60 dB(A) LAEQ Day

60 dB(A) LAEQ Day

55 dB(A) LAEQ Day

55 dB(A) LAEQ Night and 50 dB(A) LAEQ Night and
6 x 72 dB(A) LAMAX Night 6 x 68 dB(A) LAMAX Night

Figure: Protection zones and measurement stations at Frankfurt Airport
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https://framap.fraport.de/framap/main/r/isfl/go

23

Does government set noise goals? How do airports/ANSPs/airlines deliver?
Germany

•

Government firmly believes in the constitution and the 20 rights that people are entitled to have. One of these right
is ‘no indemnity to the human body’. These rights are translated in the national legislation regarding aircraft noise
(Fluglärmgesetz)

•

There is a transition ongoing to a “greener” national government, which may result in a different approach to
environmental management for airports (for example more focus on reducing noise and emissions in favor of
capacity and efficiency)

•

National government doesn’t specify specific noise goals but do require updating the protection zones every 10
years. Part of the 10-year update is the review of scientific evidence (for example results from NORAH study) that
aircraft noise and annoyance stayed at the same level or decreased. Noise limits of the protection zones can be
changed if this is deemed required during this update.

•

National government prescribes the use of ICAO balanced approach to minimise aircraft noise
(https://www.bmuv.de/themen/luft-laerm-mobilitaet/laerm/themenbereiche-laerm/fluglaerm)

•

Airports, ANSPs, local community(groups) and airlines collaborate in working groups to minimise aircraft noise and
annoyance around airports.

Country context
Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit enforcement

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Is there any spatial planning policy?
Zone

Germany

•

Country context
Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit enforcement

•

The law stipulates what rules and restrictions apply for
each protection zone. For example, no hospitals or elderly
care homes can be built in any of the protection zones.
While the daytime protection zone 1 and nighttime
protection zones prohibit any construction of new
dwellings. For existing dwellings in the same zones, the
cost of soundproofing will be covered. Houses in the
nighttime protection zone will get compensation for the
installation of a ventilation system for rooms primarily
used for sleeping. There are also different compensations
schemes for sound insulation depending on the
protection zone a dwelling resides in.

Daytime protection
zone 1
(06:00 – 22:00)
Daytime protection
zone 2
(06:00 – 22:00)
Night-time
protection zone
(22:00 – 06:00)

Existing civilian
airfield
65 dB(A) LAEQ Day

New/expanding
civilian airfield
60 dB(A) LAEQ Day

60 dB(A) LAEQ Day

55 dB(A) LAEQ Day

55 dB(A) LAEQ Night
and
6 x 72 dB(A) LAMAX
Night

50 dB(A) LAEQ Night
and
6 x 68 dB(A) LAMAX
Night

The protection zones are different for existing airfields
and new/expanding airports. An expansion of an airfield
shall be deemed substantial if it leads to an increase of at
least 2 dB(A) LAeq,day. A new/expanding airport impacts
new/other people and therefore the protection zones are
larger than zones for existing airports.

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What measures are taken to reduce aircraft noise and who leads these initiatives?
Germany

•

Airports liaise with airlines, air traffic controllers and local community to minimise noise impact within the
designated protection zones. Airports, ANSPs, local community(groups) and airlines collaborate in working groups
to minimise aircraft noise and annoyance around airports.

•

National government prescribes the use of ICAO balanced approach to minimise aircraft noise
(https://www.bmuv.de/themen/luft-laerm-mobilitaet/laerm/themenbereiche-laerm/fluglaerm).

•

Various operational measures are used at German airports to reduce air traffic noise. These measures include lownoise take-off and landing procedures as well as regulations on night flights. At several airports, Continuous
Descent Operations (CDO) are established.

•

The German Environment Agency (UBA) advises the German government on noise policy for aircraft noise (UBA
also does this for other noise sources). UBA recommends that there should be no regular flights from airports close
to towns between 10:00 p.m. and 6:00 a.m. However, this recommendation has not been realised at German
airports. The current night flight regulations contain different times For instance, at Frankfurt/Main airport flights
between 11:00 p.m. and 5:00 a.m. are not allowed. On the other hand, flights at the airports of Cologne and
Leipzig/Halle are permissible during the whole night.

Country context
Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit enforcement

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How is new data and knowledge dealt with?
Germany

•

The noise calculation method to determine the noise protection areas is prescribed in the Fluglärmgesetz under
“Instructions on the Calculation of Noise Protection Areas, ICN”

•

The German Act for Aircraft Noise Protection from 2007 is the product of all the latest knowledge (from as far back
as 1971) on noise protection.

•

The law and legislation contains articles that require to ensure that noise calculations, noise measurements and
noise zoning/limits are performed and assessed with the latest available information. How this is performed is not
described in detail, but it must be updated every 10 year.

•

In the case of an update of the noise calculation scheme, the DLR will determine new calculation input parameters
allowing more differentiation. DLR is using measurements to calibrate the (input parameters of the) model. It is
unclear how the measurements are incorporated precisely and how these updates will change the noise protection
law.

Country context
Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit Enforcement

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Are noise limits enforced? And how are individual residents protected?
Germany

•

The law stipulates how each the restrictions and rules which apply for
each protections zone. For example, no hospitals or elderly care
homes can be built in any of the protection zones. While the daytime
protection zone 1 and nighttime protection zones prohibit any
construction of new dwellings. For existing dwellings in the same
zones, the cost of soundproofing will be covered. Houses in the
nighttime protection zone will get compensation for installation of a
ventilation system for rooms primarily used for sleeping. There are also
different compensations schemed for sounds insulation depending on
the protection zone a dwelling resides in.

•

Noise limits are not enforced. The noise protection zones are assessed
every 10 years. If significant changes are found (e.g. more then 2dB
Lday/Lnight difference) a revision of the noise protection zone(s) is
required.

•

The airports also have to get an expansion permit, through the (local)
Ministry, where a decision will be made taking into account any
changes in noise contours. The Ministry has the power to reject or
change the expansion (e.g. reduce number of flights) if deemed
necessary for noise protection purposes.

Country context
Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit Enforcement

•

Everyone that resides in one of the noise protection zones can (by law)
apply for compensation or address the ministry to provide adequate
protection against aircraft noise. After hearing the parties involved
(payee and payer), the competent authority under state law shall
determine in writing the amount of the expenses that are
reimbursable.

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Zone
Daytime protection
zone 1
(06:00 – 22:00)
Daytime protection
zone 2
(06:00 – 22:00)
Night-time
protection zone
(22:00 – 06:00)

Existing civilian
airfield
65 dB(A) LAEQ Day

New/expanding
civilian airfield
60 dB(A) LAEQ Day

60 dB(A) LAEQ Day

55 dB(A) LAEQ Day

55 dB(A) LAEQ Night
and
6 x 72 dB(A) LAMAX
Night

50 dB(A) LAEQ Night
and
6 x 68 dB(A) LAMAX
Night

28

Country context - 1
France

•

France has over 159 airports

•

Largest airports are Paris Charles de Gaulle, Paris Orly, Nice Cote
d’Azur and Lyon

•

CDG number of passengers in 2019: 76 million
• ORY number of passengers in 2019: 32 million
• NCE number of passengers in 2019: 14.5 million
• LYS number of passengers in 2019: 12 million

•

Charles de Gaulle and Orly represents, in 2019, 50.4% of the
French passenger traffic

•

16 airports and aerodromes are deeply studied for noise measures.
• Lille-Lesquin, Paris-Orly, Paris-Le Bourget, Paris CDG,
Nantes Atlantique, Beauvais – Tille, Lyon Saint Exupery,
Nice Cote d’Azur, Marseille Provence, Toulouse Blagnac,
Bordeaux Merignac, Bale Mulhouse
• Toussus le Nobre, Cannes Mandelieu, Paris-Issy les
Moulineaux, Pontoise

Country context
Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit enforcement

Green – Mainly General Aviation
Red – Mainly Commercial aviation
Source : UAF and ACNUSA

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Country context - 2
France

Multiple stakeholders are interacted with different roles and responsibilities, highlighted in the figure below.

Country context
Measurement and noise limits

The competent authorities responsible for the process to
be followed when adopting operating restrictions in the
Balanced Approach Regulation is the French CAA (DGAC) Direction du transport aérien (sous-direction du
développement durable).

Government goals
Spatial planning policy
Mitigation measures

An independent administrative authority regarding noise
management - L’Autorité de contrôle des nuisances
aéroportuaires (ACNUSA) was created by Law No. 99-588
of July 12, 1999:
•
it is responsible for controlling all the measures to
combat the nuisances generated by air transport and
the airport sector;
•
it can issue recommendations on any question
relating to environmental nuisances on and around
airports;
•
it must satisfy a duty of information and transparency,
particularly to local residents;
•
In addition to its powers over all civil airports, it has
specific powers over 16 airports and aerodromes (see
previous slide), and the power to sanction airlines..

New data and knowledge
Noise limit enforcement

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How is noise impact measured? Are there any noise limits?
France
Country context
Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge

•

Lden and Lnight are the index used to measure the noise in the different plans. Number above is also used to compare the
measures.

•

4 main plans are calculated
• Plan d’exposition au bruit (PEB) for spatial planning restriction dividing airports in 3 categories (general,
aerodromes, military aerodromes)
• Plan de Gene Sonore (PGS) for isolation measures for airports with more than 20,000 mvts/year of more than 20
tons (12airports concerned)
• Carte strategique de bruit from directives 2002/49/CE and 2015/996 and 2020/367 to align with the European
directives for airports of more than 50,000 passengers (10 airports concerned)
• Courbe d’environnement sonore (CES) to monitor on some aerodromes the evolution of the noise

Noise limit enforcement

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Does government set noise goals? How do airports/ANSPs/airlines deliver?
France

In terms of noise pollution around airports, the French legislative and regulatory corpus is mainly based on the international standardization established
within the framework of the ICAO. France has translated the four pillars of the balanced approach into national regulations through the following
concepts:

Country context

•

Reduction of noise at source: The tax on airborne noise pollution (TNSA) levied at each take-off pursuant on the 12 main airports.

Measurement and noise limits

•

Land-use Planning and Management : Noise Exposure Plans (PEB), the purpose of which is to limit urbanization around airports and Noise
Disturbance Plans (PGS), the purpose of which is the isolation of building in the surrounding of the airport, funded by the TNSA

•

Noise Abatment operational Procedures : Operating procedures to reduce nuisance as much as possible including regulations on the overflight of
built-up areas, limiting helicopter traffic in areas with high population density

Mitigation measures

•

Operating Restrictions : Restrictions on the operation of 16 platforms within the general framework of the balanced approach procedure.

New data and knowledge

Some ponctual events have been created to focus on a specific topic such as the Grenelle Environnement - Convention of January 28, 2008 involving
all players of the French aviation sector

Government goals
Spatial planning policy

Noise limit enforcement

Civil aviation conducts or coordinates numerous preventive actions, such as:
•

Plan the sustainable development of airports;

•

Limit construction in noisy areas and fight against noise pollution;

•

Support industrial research in favor of less polluting aircraft and engines;

•

Act for the renewal of fleets;

•

Take into account the particularities of light aviation and helicopter transport.

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Is there any spatial planning policy?
Plan d’Exposition au bruit

France

The PEB is currently being revised to take into account the latest regulatory changes.

Country context

The development of a PEB must take into account all the short, medium and
long-term prospects for the development and use of the airport concerned.
These assumptions mainly concern:

Measurement and noise limits

•

the number of movements;

Government goals

•

air traffic trajectories;

Spatial planning policy

•

the evolution of the fleets operated;

Mitigation measures

•

the distribution of traffic between day, evening and night;

•

airport infrastructure.

New data and knowledge
Noise limit enforcement

The PEB is a graphic document on a scale of 1/25,000th which delimits four areas
of discomfort quantified by the Level day evening night (Lden) index. These areas
are

Zones A and B are essentially unbuildable. In zone C, certain constructions are authorized under certain conditions. In zone D, which is compulsory on the 11
largest lots, new accommodation is authorized provided that it is soundproofed.
The adoption of a PEB gives rise to a long and complex administrative procedure, given the stakes in terms of town planning and development. The
procedure includes in particular a consultation of the municipalities concerned as well as a public inquiry.

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Is there any spatial planning policy?
France
Country context

Plan de Gene Sonore (PGS)

The PGS delimit the zones in which the local residents can benefit, under certain conditions, from the isolation program
aid.

Measurement and noise limits
Government goals
Spatial planning policy

12 airports are concerned by this program. It is all the airorts with more than 20,000 mvts/year of more than 20 tons
(Lille-Lesquin, Paris-Orly, Paris-Le Bourget, Paris CDG, Nantes Atlantique, Beauvais – Tille, Lyon Saint Exupery, Nice Cote
d’Azur, Marseille Provence, Toulouse Blagnac, Bordeaux Merignac, Bale Mulhouse)

Mitigation measures
New data and knowledge
Noise limit enforcement

The PGS are established on the basis of the traffic estimated in the short term (n+1), the applicable air traffic procedures
and the infrastructures which will be in service the year following the date of publication of the PGS approval order.
They are drawn up under the authority of the coordinating prefect (in conjunction with the DGAC), sent for their
opinion to the municipal councils of the municipalities concerned, to the consultative committee for assistance to local
residents and to ACNUSA

3 areas are defined under which aids allocated are defined.

Airpots – Groupe I

Zone I – Very high
noise disturbance

Zone II – high noise
disturbance

Zone III – moderate
noise disturbance

>Lden 70

Lden 70 > X > Lden
65 (or Zone B (PEB)

Zone II > X > Lden
55

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What measures are taken to reduce aircraft noise and who leads these initiatives?
France
Country context
Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge

Action Plans (Plan de Prévention du Bruit dans
l’Environnement - PPBE) are created for airport,
led by DGAC and defined with the different
stakeholders. Public consultation and
environment impact can be drafted. These plans
define the actions to be taken and are renewed
periodically.
The following table summarise the type of
measures and leaders for Le Bourget. Similar
measures and initiatives are taken for the other
airports

Measures

Leader

Control the urbanization around the airport
• Establish the noise exposure plan;
• Monitor the development of urban planning around the
airport.

DGAC Préfectures DDT, UT DRIEA
Mairies

Install soundproofing
• Promote the system;
• Set up information campaigns

DGAC ADP

Develop noise abatement flight procedures
• Note the approach altitudes;

DGAC

Monitor the evolution of noise
• Develop the noise monitoring network;
• Annual publication of sound environment curves;
• Follow SURVOL and DEBATES studies

ADP DGAC Préfecture de Région
Îlede-France

Prioritize consultation

Préfectures DGAC ADP

Noise limit enforcement

Main restrictions are in place for the airports
concerned by the EU regulations that are
summarised in the following table

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What measures are taken to reduce aircraft noise and who leads these initiatives?
France

Others measures can be found led by the government or the airport
itself

Country context

Operating restrictions at aerodromes

Measurement and noise limits

Detailed measures per airports can be found
https://www.ecologie.gouv.fr/aeroports-restrictionsenvironnementales.

Government goals
Spatial planning policy

Some operating restrictions and fees charges are based on the
cumulative noise margin of the aircraft.

Mitigation measures

To find out the cumulative margin of the aircraft, the DGAC provides
airlines with a quick calculator of margins and acoustic groups of
aircraft online. https://caramel.aviation-civile.gouv.fr/

New data and knowledge

Restrictions taken at Charles de Gaulles are shown in the figure
behind.

Noise limit enforcement

Indicator IGMP at Charles de Gaulle Airport

https://www.ecologie.gouv.fr/lenvironnement-sonore-surplateforme-paris-cdg
Introduced by the order of January 28, 2003, the global weighted
measured indicator (IGMP) was put in place to better assess the sound
environment on the Paris-Charles de Gaulle platform. This indicator
may not exceed, for a given calendar year, the value of 100, which
corresponds to the energy calculated for the reference year (and
corresponds to the average for the years 1999 to 2001)

Lille Airport has voluntary imposed a limit in terms of movement for
night flights

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How is new data and knowledge dealt with?
France

•

Aircraft noise modeling around aerodromes is based on three components:
• A noise calculation method implemented in a computer program using Eurocontrol tool - IMPACT;
• The ANP database of aircraft necessary to finely characterize the noise emissions of each aircraft;
• Data relating to infrastructure, traffic, trajectories and operating conditions specific to each aerodrome
• For helicopters the ANP database is still not developed, so INM is used.

•

In the past, INM was used and plans are renewed periodically. When the decision has been made to change tool, a
study to evaluate the difference on results with the two tools has been made. This study has assessed that
differences in the output can be considered as acceptable. Therefore, plans will be renewed according to their
current planning.

Country context
Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit Enforcement

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Are noise limits enforced? And how are individual residents protected?
France
Country context

The Noise exposition plans are based on long term development plan, with a very conservative approach and is to
prevent operational restrictions due to aircraft noise by denoting land around airports as non-suitable for development
of noise sensitive buildings.

Measurement and noise limits
Government goals
Spatial planning policy

When purchasing a building or residence within the noise contour, the buyer should receive the information on noise
exposition and these information are publicly available.

Mitigation measures
New data and knowledge
Noise limit Enforcement

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Country context - 1
UK

•

England has a high population density, higher than most European countries, which makes it inevitable that
aircraft noise will be a particular issue compared to other countries.

Country context

•

The UK government is directly responsible for the noise management at London Heathrow, Gatwick and Stansted
airport. All other airports are best handled by the airport itself with local authorities and the surrounding
population.

•

The Noise Roadmap being developed by Sustainable Aviation, sets out the UK aviation industry’s blueprint for
managing noise from aviation sources to 2050. The UK was also instrumental in securing an agreement on a
tougher international noise standard in the ICAO Committee on Aviation Environmental Protection (CAEP).

Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit enforcement

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Country context - 2
UK

•

Whilst the aviation industry brings significant benefits to the UK economy, there are costs associated with its local
environmental impacts which are borne by those living around airports, some of whom may not use the airport or
directly benefit from its operations.

•

The UK government recognises that noise is the primary concern of local communities near airports. The extent to
which noise is a source of tension between airports and local communities varies depending on factors such as the
location of an airport in relation to centres of population and the quality of its relations and communications with
its local communities. Many UK airports thus make considerable efforts to engage their local communities and that
the relationship is well managed.

•

The UK government aim to strike a fair balance between the negative impacts of noise (on health, amenity (quality
of life) and productivity) and the positive economic impacts of flights. As a general principle, the UK government
therefore expect that future growth in aviation ensures that benefits are shared between the aviation industry and
local communities. This means that the industry must continue to reduce and mitigate noise as airport capacity
grows. As noise levels fall with technology improvements the aviation industry is expected to share the benefits
from these improvements.

•

The UK government has made its intentions clear that its policy on aviation noise will be consistent with
agreed international approaches and will remain compliant with relevant European laws. The UK government also
fully recognises the ICAO Assembly ‘balanced approach’ principle to aircraft noise management.

Country context
Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit enforcement

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How is noise impact measured? Are there any noise limits?
UK

•

Country context
Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge

The Aviation Policy Framework of 2013 is the guiding
document relating to aircraft noise in the UK requiring airports
to produce annual noise exposure maps, using the 54 to 72 dB
LAeq,16hr contour for informational and monitoring purposes.
The 54 dB LAeq,16hr daytime contour is (currently) considered the
limit for significant community annoyance, the Lowest
Observed Adverse Effect Level (LOAEL). Other than for
informational purposes, it is used for cost-and-benefit analyses
for possible changes to the use of airports.

•

Airports also report noise exposure using multiple other
metrics in their annual reports, including annual Lday, Levening,
Lnight, Lden, LAeq,6.5hr night, N65 and N70 annual 16-hour day and
N60 annual 8-hour night noise contours. The UK CAA also
proposed to report overflight metrics for two scenarios: noise
changes between 2006 and 2019 and noise changes between
2018 and 2019.

•

Fixed noise monitoring stations are used to measure aircraft
noise around the airport. A live web application is available to
the public for Heathrow, Gatwick and Stansted to access
information about noise levels around the airport. See
https://webtrak.emsbk.com/lhr4 for more information

Noise limit enforcement

Aviation Consultants

London Heathrow LAeq, 16 hour daytime contours for an
average summerday (from 54 dB and higher)

41

Does government set noise goals? How do airports/ANSPs/airlines deliver?
UK

•

As well as setting the overall national policy framework for aviation noise, the Government has powers under the
Civil Aviation Act 1982 to set noise controls at specific airports which it designates for noise management purposes.

Country context

•

For many years, Heathrow, Gatwick and Stansted Airports have been designated for these purposes and will
continue to hold that status. These airports remain strategically important to the UK economy and are therefore
considered appropriate for the UK government to take decisions on the right balance between noise controls and
economic benefits, reconciling the local and national strategic interests.

•

Other airports not currently designated for noise management purposes have powers to set their own noise
controls and the UK government encourages appropriate controls to be agreed locally. For example, local
authorities will want to consider whether to set such controls as a planning condition on new airport development.
Noise controls at the designated airports (LHR, LGW, and STN) provide examples for other airports to consider as
appropriate. Airports also ensure that the effectiveness of their measures to tackle noise is reviewed on a regular
basis.

•

The UK government also instructs local authorities and airports to use the Lowest Observable Adverse Effect Level
(LOAEL) and Significant Observed Adverse Effect Level (SOAEL) metrics when analyzing changes in the noise
situation. This is part of the Transport Analysis Guidance (TAG) methodology to calculate adverse effects of changes
in operations

Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit enforcement

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Is there any spatial planning policy?
UK

•

Land-use planning and management is one of the elements of the ICAO balanced approach which should be
explored when tackling noise problems at an airport. In line with the UK’s noise policy, the UK’s National Planning
Policy Framework (NPPF) says that planning policies and decisions should aim to avoid a situation where noise
gives rise to significant adverse impacts on health and quality of life as a result of new development, and to mitigate
and reduce to a minimum other adverse impacts on health and quality of life arising from noise from new
development.

•

The NPPF expects local planning policies and decisions to ensure that a new development is appropriate for its
location and the effects of pollution – including noise – on health, the natural environment or general amenity are
considered. This does not rule out noise-sensitive development in locations that experience aircraft noise. In the
same way that some people consider themselves annoyed by aircraft noise even though they live some distance
from an airport in locations where aircraft are at relatively high altitudes, other people living closer to an airport
seem to be tolerant of aircraft noise and may choose to live closer to the airport to be near to employment or to
benefit from the travel opportunities.

•

There can also be other good economic or social reasons for noise-sensitive developments to be in such areas.
However, reflecting UK’s noise policy, the NPPF is quite clear that the planning system should prevent new
development being put at unacceptable risk from, or being adversely affected by, unacceptable levels of noise
pollution. Local planning authorities therefore have a responsibility to ensure that the land use element of the
balanced approach is implemented in the context of their local plan policies, including any on noise. People
considering moving to an area which may be affected by existing aircraft noise also have a responsibility to inform
themselves of the likely impacts before moving to the area, and airport operators should ensure that all necessary
information to inform such decisions is easily accessible.

Country context
Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit enforcement

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What measures are taken to reduce aircraft noise and who leads these initiatives
UK

•

The Aviation Policy Framework aims to limit, and where possible, reduce the number of people in the UK
significantly affected by aircraft noise

•

The main drivers to achieve this are planning decisions (limiting the impact of noise in any new development) and
to work with the aviation industry to encourage the development of quieter aircraft and support airport operators
in enforcing noise policies.

•

London Heathrow, Stansted and Gatwick are also using the Noise Quota Count system (in place since 1993).
Stimulating noise reduction for airlines. The quieter the aircraft, the less ‘points’ you use. When the airport's quota
has been fully used up, no more night-time movements are allowed to take place. The total Noise Quota Count
points allocated to each airport operating the system stimulates year-on-year noise reduction. The airports use dayby-day limits for night flights to comply to the night noise restrictions.

•

The CAA also uses manage airspace - all of which can help limit and reduce the impact of aircraft noise.

•

Airports, airlines, CAA and community groups work together in a noise forum (at least for Heathrow and Gatwick) to
research opportunities to reduce nuisance of aircraft noise near airports.

Country context
Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit enforcement

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How is new data and knowledge dealt with?
UK

•

In the UK, noise modelling is performed by the CAA using the ANCON noise model. The UK Civil Aircraft Noise
Contour Model (ANCON) is fully compliant with ECAC Doc 29 4th Edition and uses measurements to update the
noise database used for noise modelling.

•

ANCON’s noise database is checked and updated on an annual basis by taking several hundreds of thousands of
noise measurements around Heathrow, Gatwick and Stansted airports each year. In particular, the database
contains extensive noise information for the majority of aircraft types that operate from UK airports, unlike other
noise models. It is unknown whether the data has led to any changes in noise policy.

•

The ANCON noise model is therefore a UK specific noise model relying on a steady stream of local measurements
to enrich the noise calculations

Country context
Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit Enforcement

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Are noise limits enforced? And how are individual residents protected?
UK
Country context
Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit Enforcement

•

While the National Planning Policy Framework (NPPF) requires noise to be considered for new developments, there are no noise limits for land-use
planning and management. New developments in noise sensitive areas (69 or 63 dB LAeq,16hr ) are therefore not explicitly prohibited.

•

Individuals are protected by the regulations in the Aviation Policy Framework. The regulations & compliance to the regulations are determined and
monitored by the Department for Transport for Heathrow, Stansted and Gatwick. For other airports, local governmental bodies decide what
regulations apply. These regulations are derived from UK specific studies, such as the Survey of Noise Attitudes (SoNA) study, showing the
correlation between aircraft noise and annoyance (and underlying diseases). The most important regulations are:
•
The Government wishes airports to consider using the powers available to them to set suitable noise controls such as departure noise
limits, minimum height requirements, noise-preferential routes and adherence to continuous descent approach, and where
appropriate to enforce these with dissuasive and proportionate penalties. Both the controls and the levels of penalties should be
reviewed regularly (at least as often as the Noise Action Plan where applicable) in consultation with local communities and consultative
committees, to ensure they remain effective. For the noise-designated airports, the Department’s Aircraft Noise Management Advisory
Committee will review the departure and arrivals noise abatement procedures, including noise limits and use of penalties, to ensure
that these remain appropriately balanced and effective.
•
The Government continues to expect airport operators to offer households exposed to levels of noise of 69 dB LAeq,16h or more,
assistance with the costs of moving.
•
The Government also expects airport operators to offer acoustic insulation to noise-sensitive buildings, such as schools and hospitals,
exposed to levels of noise of 63 dB LAeq,16h or more. Where acoustic insulation cannot provide an appropriate or cost-effective
solution, alternative mitigation measures should be offered.
•
If no such schemes already exist, airport operators should consider financial assistance towards acoustic insulation for households.
Where compensation schemes have been in place for many years and there are few properties still eligible for compensation, airport
operators should review their schemes to ensure they remain reasonable and proportionate.
•
Where airport operators are considering developments which result in an increase in noise, they should review their compensation
schemes to ensure that they offer appropriate compensation to those potentially affected. As a minimum, the Government would
expect airport operators to offer financial assistance towards acoustic insulation to residential properties which experience an increase
in noise of 3dB or more which leaves them exposed to levels of noise of 63 dB LAeq,16h or more.
•
Any potential proposals for new nationally significant airport development projects following any Government decision on future
recommendation(s) from the Airports Commission would need to consider tailored compensation schemes where appropriate, which
would be subject to separate consultation.
•
Airports may wish to use alternative criteria or have additional schemes based on night noise where night flights are an issue. Airport
consultative committees should be involved in reviewing schemes and invited to give views on the criteria to be used.

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Country context - 1
Australia
Australia responsible for 11% of
global airspace, divided into two FIRs

Country context
Measurement and noise limits

Busiest airports are Sydney,
Melbourne & Brisbane

Government goals
Spatial planning policy

Darwin
Cairns

Mitigation measures
New data and knowledge
Noise limit enforcement

Brisbane
Gold Coast
Perth

Adelaide

Sydney
Newcastle

Melbourne
Avalon
Hobart

New parallel runways under
development at Melbourne & Perth
plus one recently commissioned in
Brisbane
Long distances and lack of
alternatives supports a strong
domestic market
Movements expected to grow
strongly post-pandemic

Australian airspace and international airports

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Country context - 2
There are also busy training / GA airports in
Sydney, Melbourne, Brisbane, Adelaide & Perth.
These have become surrounded by urban
development.

Australia
Country context
Measurement and noise limits

All airports with significant traffic in controlled
airspace are privately operated on government
owned land, managed through a long-term
lease and are subject to planning and noise
obligations through the leasehold agreements.

Government goals
Spatial planning policy
Mitigation measures
New data and knowledge

Aircraft noise management in Australia is the
responsibility of Airservices Australia (ANSP)
covering:

Noise limit enforcement

•
•
•
Moorabbin Airport (Melbourne) noise contours

Aviation Consultants

•

Noise complaints handling and reporting
Noise monitoring equipment operation
and reporting
Community consultation (in conjunction
with airports)
Establishment, promulgation and
management of noise abatement
programs and fly-neighbourly agreements

48

How is noise impact measured? Are there any noise limits?
The ANEF combines two factors (noise level and frequency of operations)
by a mathematical formula, with additional weighting applied to flights
between 1900-0700.
Actual noise level measurement in the ANEF formula is Effective
Perceived Noise Level (EPNdB) which is also used in the noise certification
process for new aircraft. EPNdB is derived from a complex algorithm but
based on three basic principles:

Australia
Country context
Measurement and noise limits
Government goals
Spatial planning policy

•
•
•

Mitigation measures
New data and knowledge

Level of noise
Frequency distribution (How often noise occurs)
Time variation (How long noise lasts)

Noise limit enforcement

ANEFij = EPNdBij + 10 log10(Nd + Nn) – 88
where

In 1982, the ANEF (Australian Noise Exposure
Forecast) was established, following an
extensive study by the National Acoustic
Laboratories (NAL) into the community
impact of aircraft noise.

ANEFij = noise exposure due to aircraft type i on flight path j
EPNdBij = noise level of aircraft type i on flight path j
Nd Nn = number of flights during the day and night respectively, of aircraft i on
flight path j

The figure ‘88’ is an arbitrary constant chosen so that ANEF numbers
typically fall in a range where they are unlikely to be confused with other
noise settings
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How is noise impact measured? Are there any noise limits?
Australia
Country context
Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit enforcement

AS 2021:2015 Acoustics, Aircraft noise intrusion, building siting and
construction is the Australian regulatory standard governing construction of
noise sensitive buildings near airports. To date, this is the only statutory
requirement governing aircraft noise management in Australia.
Every airport on government land is required to produce an ANEF every 5
(major airport) to 8 (regional airport) years as part of a Master Plan. An ANEF
must be endorsed by Airservices Australia. The ANEF 20 contour denotes the
extent of planning / building permission for noise sensitive locations.
Therefore, if the ANEF contour increased to encompass an existing location ANEF – Melbourne Airport (2018)
such as a home, school or hospital the airport / Airservices would be
required to remedy the situation (change operating modes / provide
attenuation / movement caps / etc). However, as almost all ANEFs are
designed for the ultimate capacity of the airport from the outset and aircraft
are getting quieter these contours almost never extend outwards.
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How is noise impact measured? Are there any noise limits?
Australia
Country context
Measurement and noise limits
Government goals

Noise Above Contours – N-Contours
ANEF has value from an airport planning perspective but there is not a
strong correlation between ANEF contours and incidence of aircraft
noise complaints.
An alternate measurement for understanding this relationship are
noise-above contours which indicate the number of events above a
certain noise level.

Spatial planning policy
Mitigation measures
New data and knowledge

For instance, N70 20 events (see diagram) is the contour boundary
where a person on the ground could expect to experience aircraft
noise above 70 dB more 20 times in a day. (70 dB is chosen as the
sound level that may disrupt a conversation indoors)

Noise limit enforcement

Typically, airports will produce the following N-contours:
• N70 – 20 events
• N65 – 50 events
• N60 – 100 events
These are not related to any specific targeted measure but represent
the level at which a statistically relevant increase in noise complaints is
recorded.
There is no regulatory control based on N-Contours. However, they are
considered by Airservices and authorities in determining the need for
mitigation measures. Beyond the statutory planning requirement of
the ANEF there is no obligation to take mitigation measures above any
limit value. The most effective method for communities to get results is
to apply pressure to elected representatives.
Aviation Consultants

ANEF vs N-Contours – Sydney Airport

51

Does government set noise goals? How do airports/ANSPs/airlines deliver?
Australia

The National Airports Safeguarding Advisory Group (NASAG) is an industry advocacy group providing guidance to the Department of
Infrastructure, Transport, Regional Development and Communications (DITRDC) on a range a of issues affecting aviation safety.

Country context

This is delivered through the National Airports Safeguarding Framework and provides support and guidance to state, territory and local
government bodies to:

Measurement and noise limits
Government goals

•

Improve safety outcomes by ensuring aviation safety requirements are recognised in land use planning decisions

•

Improve community amenity by minimising noise sensitive developments near airports, including through the use of additional noise
metrics

•

Improve aircraft noise-disclosure mechanisms

Spatial planning policy
Mitigation measures
New data and knowledge

Currently DITRDC is soliciting feedback from stakeholders regarding whether the NASF guidelines should become part of the regulatory
landscape.

Noise limit enforcement

Following the publication of Aviation White Paper, Flight Path to the Future in 2010, the Australian Noise Ombudsman was established as
an independent reviewer of Airservices Australia and the Australian Defence Force management of aircraft noise including:

•

Complaint handling

•

Community consultation

•

Presentation and distribution of aircraft noise related information

In relation to aircraft noise the Australian Government continues to manage aircraft noise with a light touch.

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Does government set noise goals? How do airports/ANSPs/airlines deliver?
Australia
Country context
Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit enforcement

In Australia, changes to airport operations to accommodate noise
impacts usually occur as the result of political influence stemming
from organised community action.
In 1996, advocacy by community groups in Sydney resulted in the
Minister for Transport and Regional Development issuing a directive to
Airservices Australia to implement an operational plan that shared the
noise generated by Sydney Airport, meaning that mitigation measures
taken from that moment on must ensure that noise is evenly
distributed over population and terrain, so that not a single
community is predominantly impacted by the noise generated by
Sydney Airport. In the case of Sydney Airport, noise sharing
considerations take priority over efficient operations.
This resulted in the implementation of the Long Term Operating Plan
(LTOP) in addition to hourly caps on aircraft movements and an
operational curfew.
Curfews also exist at other airports – Adelaide, Essendon & Gold Coast.
Noise Abatement Programs (NAP)

Where possible, Airservices, airports and operators will participate in a
NAP where specific geographic areas will be avoided at certain times
to reduced impacts. A NAP will become part of the airport data
package in AIP.
Fly Neighbourly Agreements (FNA)
For smaller and regional airports, local Councils will work with
Airservices and operators to develop an FNA whereby pilots avoid
certain combinations of activities and locations, such as low-level
flying or acrobatics
LTOP – Sydney Airport (1997)

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Is there any spatial planning policy?
Australia
Country context
Measurement and noise limits
Government goals

Major airports in Australia are required to deliver a Master Plan every five years including:
•

Traffic movements & passenger numbers

•

Operational plans (runways, taxiways, flight paths, etc.)

•

Aircraft types

This data forms a significant portion of the input to the ANEF which can be expressed, and clearly labelled, as one of the following:

Spatial planning policy

•

Standard: 20-year forecast

Mitigation measures

•

Long-Range: A stipulated period beyond 20 years

New data and knowledge

•

Ultimate capacity: Maximum utilisation of the operational runways

Noise limit enforcement

The format chosen is dependent on the airport’s planning strategy for safeguarding land for future operations.

Once endorsed, the ANEF is usually available in a GIS compatible format for:
•

Land-use planning authorities

•

State and territory agencies

•

Property developers

•

Landowners close to, or within the contour boundaries

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What measures are taken to reduce aircraft noise and who leads these initiatives?
Australia

Airports

Measurement and noise limits

Airport infrastructure is expensive, and many business cases are underpinned by forecast movements and passenger
numbers. Operational restrictions are a major threat to profitability and most major airports will be proactive in
managing community engagement on aircraft noise.

Government goals

Local and state government

Spatial planning policy

Representative governments are sensitive to issues that can win or lose seats. Some successful governments campaign
on reducing or managing aircraft noise. Strategies adopted by governments can include, but are not limited to:

Country context

Mitigation measures
New data and knowledge
Noise limit enforcement

•

Attenuation programs (double glazing, insulation, etc) – i.e., Adelaide

•

Lobbying for operational restrictions – i.e., Sydney, Brisbane

•

Noise abatement programs or Fly neighbourly agreements – i.e., Port Macquarie, Melbourne

•

Covenants on land titles - i.e., Busselton

Community Groups
Although not invested with a great deal of political power, or regulatory support, organised community action has
delivered the most meaningful changes to airport noise. Well supported, organised and media savvy aircraft noise
campaigns put pressure on elected representatives. In the right political environment this has resulted in the
implementation of measures to reduce aircraft noise or provide respite.

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How is new data and knowledge dealt with?
Australia

Airservices Australia has moved from using INM for
aircraft noise modelling to AEDT and has mandated
the same for developers of ANEF models. This has
only had a minimal input on the contour profiles for
the ANEF model.

Country context
Measurement and noise limits
Government goals

However, N-Contours were previously produced by
a bespoke software product called TNIP (developed
by the Dept. of Transport), using INM outputs to
produce the contour diagrams.

Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit Enforcement

TNIP does not work with AEDT and has not been
upgraded (as of Jan 2022). Subsequently, noise
modelling consultancies are using different
contouring tools and algorithms to plot the noiseabove data points produced by AEDT.

A prescribed methodology / tool is required to
ensure a consistent output for N-Contours.

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Are noise limits enforced? And how are individual residents protected?
Australia

The nature of the ANEF system is to prevent operational restrictions due to aircraft noise by
denoting land around airports as non-suitable for development of noise sensitive buildings.

Country context

Government goals

As ANEFs are created based a 20-year forecast, or even a maximum runway capacity basis,
the buffer zone around airports nearly always exceeds the extent of likely noise events. This
safeguards the airports future operations from encroachment.

Spatial planning policy

Actuals noise limits are not directly enforced.

Mitigation measures

If aircraft noise is determined to be excessive through the receipt of noise complaints or
monitoring stations located near airports, then mitigations maybe implemented. It is the
adherence to the mitigation strategies that is subsequently policed by Airservices (i.e.,
aircraft operators arriving / departing outside a stipulated time or ignoring the
requirements of a noise abatement procedure may be sanctioned).

Measurement and noise limits

New data and knowledge
Noise limit Enforcement

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Country context
BSL

Switzerland

ACH

ZRH

Switzerland's 7 busiest airports by passenger traffic in
2019

Country context
BRN

Measurement and noise limits

Airport

Passengers

Movements

Spatial planning policy

Zurich

31.478.748

275.325

Geneva

17.826.513

186.043

Basel-Mulhouse

9.068.206

99.270

St Gallen

107.637

26.496

Lugano-Agno

56.201

18.794

Bern-Belp

22.233

41.121

Sion

2.381

38.808

Mitigation measures
New data and knowledge

National

Government goals

Regional

Noise limit enforcement

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SIR
GVA
LUG

Population Density

58

Country context
BSL

Switzerland

•

Country context
Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit enforcement

•

In Switzerland, the number of highly annoyed
residents around airports continues to grow.
Local residents have long complained that the
steadily increasing number of flights has
disturbed their sleep, health and property
prices.
Most busy airports, such as Zurich, Geneva
and Basel, are located near the country
border, requiring Swiss regional and national
administrations and institutions to work in
close cooperation with their French and
German counterparts

ACH

ZRH

BRN

SIR
GVA
LUG

Population Density

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How is noise impact measured? Are there any noise limits?
Switzerland
Country context
Measurement and noise limits

The Rating Sound Level Lr is calculated in accordance with the Swiss Noise Abatement Ordinance (NAO). This is determined separately for
heavy aircraft with a maximum take-off weight (MTOW) > 8.618 kg and for light aircraft with MTOW ≤ 8.618 kg.
For light aircraft, the rating sound level Lrk is the sum of the equivalent continuous A-weighted sound level Leqk and the level correction
K:

Spatial planning policy

Lrk = Leqk + K, in which the equivalent continuous sound level Leqk is determined for the average number of hourly aircraft movements
(number of movements n) for a day with average peak operations. Aircraft movements are all landings and takeoffs of light aircraft. Goarounds count as two flight movements. The level correction K is calculated from the annual number of aircraft movements N as follows:

Mitigation measures

o

K = 0 for N < 15 000

o

K = 10 x log (N/15 000) for N ≥ 15 000

Government goals

New data and knowledge
Noise limit enforcement

For heavy aircraft, noise is calculated separately for the following time periods, so that noise of individual aircraft is not weighted over the
entire night and thus more relevant for the specific time of night:
•

Day hours (06:00 to 22:00)

•

First night hour (22:00 - 23:00)

•

Second night hour (23:00 to 00:00)

•

Last night hour (05:00 to 06:00)

For heavy aircraft, the daytime rating sound level is the sum of the equivalent continuous A-weighted sound level Leqg arising from aircraft
operations between 06 and 22 hours, averaged over one year:

Lrg = Leqg

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How is noise impact measured? Are there any noise limits?
Switzerland

The noise rating sound level for the total traffic noise during the day is calculated by adding the energy levels of large
and small aircraft according to the following equation:

Country context

𝐿𝑟𝑡 = 10𝑙𝑜𝑔

Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit enforcement

𝐿𝑟𝑘
𝐿𝑟𝑔
10
10 + 10 10

The noise exposure level for noise at night, expressed as Lrn, from large aircraft traffic is the equivalent continuous Aweighted sound level Leqn, each averaged over one hour, arising from aircraft operations during the first, the second
and the last night hours, averaged over one year:
•

Lrn1 = Leqn1 for the first night hour (22:00 to 23:00)

•

Lrn2 = Leqn2 for the second night hour (23:00 to 00:00)

•

Lrn3 = Leqn3 for the last night hour from (05:00 to 06:00)

Lden is only calculated for airports close to the country border, when required
Number above metrics are not used in Switzerland

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How is noise impact measured? Are there any noise limits?
Switzerland
Country context
Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit enforcement

Exposure limit values include impact thresholds, planning values and alarm values. These are set according to the noise characteristics, the
time of day and the sensitivity to noise of the buildings and areas to be protected. In particular, rooms sensitive to noise are:
a) rooms in dwellings with the exception of kitchens without dining facilities, washrooms and storerooms;
b) rooms in industrial buildings that are regularly occupied by persons for sustained periods of time, with the exception of those for farm
animals and those with high levels of industrial noise.
According to Art.7 “Emission limitation measures for new stationary installations” of the Swiss NAO, noise emissions from new stationary
installations shall be limited as directed by the enforcement authorities insofar as:
a) this is technically and operationally feasible and economically acceptable; and
b) the noise exposure level resulting from the installation alone does not exceed the planning values.

However, the enforcement authorities shall relax the requirements in cases where compliance with the planning values would place a
disproportionate burden on the installation and there is an overriding public interest, particularly regarding questions of spatial planning. The
impact thresholds must not, however, be exceeded.
Where a stationary installation that already exists is modified, the noise emissions from the installation as a whole must be limited at least to
the extent that the impact thresholds are not exceeded (Art. 8 of Swiss NAO of 1986). Unlicensed private installations must not, however,
exceed the alarm values.

If, as a result of relaxing the requirements, the alarm values for public or licensed stationary installations cannot be complied with, the
enforcement authorities shall require the owners of existing buildings exposed to noise to soundproof the windows of rooms sensitive to
noise. With the approval of the enforcement authorities, building owners may take other soundproofing measures in the building provided
these reduce the noise within the rooms to the same extent.

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How is noise impact measured? Are there any noise limits?
Switzerland

According to the Swiss Noise Abatement Ordinance of 1986 – Annex 5, exposure limit values for noise from civil aerodromes are:

Country context

Exposure Limit Values for Light Aircraft Traffic Noise, expressed as Lrk:

Measurement and noise limits

Sensitivity level

Government goals
Spatial planning policy

Planning
value

Impact
threshold

Alarm value

Lrk in dB(A)

Lrk in dB(A)

Lrk in dB(A)

Mitigation measures

I

50

55

65

New data and knowledge

II

55

60

70

Noise limit enforcement

III

60

65

70

IV

65

70

75

In land use zones according to Articles 14 ff. of the Spatial Planning Act of 22 June 197939, the following sensitivity levels apply:
•
•
•

•

sensitivity level I in zones with higher noise abatement requirements, notably in leisure zones;
sensitivity level II in zones in which operations that emit noise are not permitted, notably in residential zones and zones for public
buildings and installations;
sensitivity level III in zones in which operations emitting a certain level of noise are permitted, notably in residential and industrial
zones (mixed zones) and agricultural zones;
sensitivity level IV in zones in which operations emitting a high level of noise are permitted, notably in industrial zones.

Parts of land use zones rated as sensitivity levels I or II may be assigned the next higher level if they are already exposed to noise.

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How is noise impact measured? Are there any noise limits?
Switzerland

According to the Swiss Noise Abatement Ordinance of 1986 – Annex 5,
exposure limit values for noise from civil aerodromes are:

Country context
Measurement and noise limits

For the total traffic noise from civil aerodromes used by heavy aircraft, the following exposure limit values apply in addition
to the exposure limits expressed as Lrk:

Government goals
Spatial planning policy

Day Time Exposure Limit Values

Mitigation measures
New data and knowledge

Sensitivity level

Night Time Exposure Limit Values

Planning
value

Impact
threshold

Alarm value

Lrt in dB(A)

Lrt in dB(A)

Lrt in dB(A)

I

53

55

60

II

57

60

III

60

IV

65

Noise limit enforcement

Sensitivity level

Planning
value

Impact
threshold

Alarm value

Lrn in dB(A)

Lrn in dB(A)

Lrn in dB(A)

I

43

45

55

65

II

47/50

50/55

60/65

65

70

III

50

55

65

70

75

IV

55

60

70

1

1

1

1The higher value applies for the first night hour (22-23 hours)

The alarm value is used for priority identification when noise insulation programs are carried out.

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Does government set noise goals? How do airports/ANSPs/airlines deliver?
Switzerland
Country context
Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit enforcement

On 28 June 2017, the Swiss Government established a 3-points strategic national plan aiming to limit noise at source to
promote population health, especially in the urban environment. For air traffic, the first strategic point aims to reduce
noise emissions as part of an international cooperation relationship. The second strategic point of the plan of measures
provides for the promotion of areas of tranquility and refreshment as part of the development of the settlements. In the
third point, the Confederation is contemplating the modernization of noise monitoring and the diffusion of the relevant
information in order to increase the public's awareness of the problem.
The Swiss Noise Abatement Ordinance (NAO) of 1986 defines exposure limits for traffic noise and other technical noise
sources. It limits permissible emissions at the source and contains building restrictions for areas exceeding the noise
limits.
Switzerland just opened a discussion for new noise limits for street, rail, aviation etc., partially started due to the relation
to the new WHO-guidelines.
The national commission on noise abatement has published its report in December 2021 and proposes to at least
double the effected area when taking a noise limit. This project will be ongoing for the next few years.

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Is there any spatial planning policy?
Switzerland
Country context
Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures

The federal sector plan for infrastructure planning is the first step in spatial planning. It ensures space for airports to
develop business plans. Cantons, municipalities etc. have to take this into account. FOCA is responsible for setting up
the federal sector plan for infrastructure planning. The noise plan of the airport may not be greater than the spatial
planning. The airport is allowed to fill the noise contour terrain in spatial planning, displayed in the Swiss noise kataster.
In land use zones according to Articles 14 ff. of the Spatial Planning Act of 22 June 1979, the following sensitivity levels
apply:

•

Sensitivity level I in zones with higher noise abatement requirements, notably in leisure zones;

•

Sensitivity level II in zones in which operations that emit noise are not permitted, notably in residential zones and
zones for public buildings and installations;

•

Sensitivity level III in zones in which operations emitting a certain level of noise are permitted, notably in residential
and industrial zones (mixed zones) and agricultural zones;

•

Sensitivity level IV in zones in which operations emitting a high level of noise are permitted, notably in industrial
zones.

New data and knowledge
Noise limit enforcement

Parts of land use zones rated as sensitivity levels I or II may be assigned the next higher level if they are already exposed
to noise.
The cantons shall ensure that sensitivity levels are assigned to the land use zones in the building regulations or land use
plan of the communes.
Defined noise contours may be exceeded a maximum of 2 years in a row. If the noise contours are exceeded for a
longer time period, measures must be taken by the airport in the form of a yearly report that states the problems at
hand, the measures already taken and future expectations and handed in to FOCA.

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Is there any spatial planning policy?
Switzerland
Country context
Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit enforcement

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What measures are taken to reduce aircraft noise and who leads these initiatives?
Switzerland
Country context
Measurement and noise limits
Government goals

•

All measures taken are in line with the Balanced Approach by ICAO

•

Arrival and departures are designed to least impact communities.

•

The government is the leader for the measures that concern the use of certain aircraft types, noise and emission
taxes (even differentiated in time) and night curfews.

•

Airports are the leader for local measures, such as limitations e.g. no take-offs in the second night hour in Basel
(enforced in February 2022) based on chapter 3 minus 15.

•

Zurich is special in runway use protocols. It operates different use modes depending on the weather, but the main
driver is restrictions in German regulation that limit landings from the north.

•

In 2018, an official report stated that the noise was sometimes considerably above permitted levels between 10pm
and midnight at Zurich Airport. The Federal Office of Civil Aviation decided to limit the number of time slots for planes

Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit enforcement

at ZRH and ordered a freeze on landings after 9pm and for take-offs after 10:20pm to reduce the noise for residents living
near the airport.

•

In order to improve dialogue with local residents, Genève Aéroport has developed an interactive platform
concerning aircraft movements and emitted noise. This platform is rich in information (noise measurement, legal
provisions, actions taken, information on movements, etc.) and is a privileged link between the airport and local
residents.

•

Moreover, takeoffs and landings of non-commercial flights are allowed at Genève Aéroport between 06:00 and
22:00. For commercial flights, takeoffs and landings are possible from 06:00 until 00:30. No departure slot is granted
after 22:00 and no arrival slot after 00:00 Thus, departures between 22:00 and 00:30 and arrivals between 00:00 and
00:30 are movements planned in case of delay.

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How is new data and knowledge dealt with?
Switzerland

•

The Swiss Federal Laboratories for Material Science and Technology (EMPA) has developed engineering models
FLULA2 and sonAIR for aircraft noise calculation. FLULA2 is an official tool to calculate yearly aircraft noise exposure
in Switzerland. sonAIR is a next-generation aircraft noise calculation program that is being tested at the airports of
Zurich and Geneva.

•

FLULA2 is based on a sound source database from measurement campaigns, such as those at Zurich airport in 1991
and 1996. FLULA2 is complemented with various supplementary programs to process input data for calculations as
well as to post-process.

•

sonAIR comprises of a source model describing the sound emission and directivity as a function of flight
configuration (power setting and aeroplane configuration, i.e., flaps, slats and landing gear). The source model is
combined with EMPAs sound propagation model sonX. The model is based on acoustic measurements of air traffic
in the vicinity of Zurich Airport in 2013 and 2014 and is constantly being actualized. sonAIR was funded within the
Special Financing of Civil Aviation by the Federal Office of Civil Aviation (FOCA). Additional funding was provided
by EMPA, Flughafen Zürich AG, Aéroport International de Genève (AIG), Office of Transport of the Canton of Zurich
(AFV), as well as Skyguide within the framework of CHIPS.

•

The use of noise measurements as model input has not yet led to changes in noise policy.

•

Noise modelling is different for each airport. In Geneva, the development of the aircraft fleet in the next 10-15 years
is taken into account. In Zurich, only actual current traffic is being used. A number of Swiss airports are developing
together with Research Centres new technologies and systems in order to optimise approach procedure to an
airport; among these, it is currently under development the Low Noise Augmentation System (LNAS) in order to
support pilots as they perform the complex procedures required for a low-noise approach.

•

An annual control calculation of noise pollution takes place that is based on real individual flights.

Country context
Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit Enforcement

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Are noise limits enforced? And how are individual residents protected?
Switzerland

•

The cantons are responsible for the enforcement of the Noise Abatement Ordinance, intended to protect against harmful
and disturbing noise.

Country context

•

The Federal Department of the Environment, Transport, Energy and Communications (DETEC) is responsible for enforcing
the provisions governing emission limitation measures, improvements and the determination and control of noise exposure
levels where the provisions relate to buildings and installations (under Article 37 of the Air Navigation Act of 21 December
1948) that are used for operation of an aerodrome and are implemented by means op a planning approval procedure. In
other cases, the Federal Office of Civil Aviation is responsible for enforcement. (The Federal Office of Civil Aviation (FOCA),
responsible for aviation development and the supervision of civil aviation activities in Switzerland, is part of DETEC).

•

Complaints concerning aircraft noise are submitted to the cantons or the airports.

•

If airports are not able to stay within defined noise contours in force, they have to make a new demand to FOCA for
enlargement of the contours, which is a complex legal process. There is the possibility for the community to react and
complain in this process. Airports with commercial flights can be granted exemptions by FOCA, but noise protection
measures (such as insulation programs) must be taken.

•

There are clear rules in place under which conditions delayed aircraft can land at an airport and is written in reports that
airports send to FOCA on a monthly/yearly basis, along with complaints.

•

In 2003 Genève Aéroport established a concept of soundproofing of nearby housings and takes over the related cost.

•

At various airports in Switzerland, the landing charges payable include a component dependent on the noise generated by
the aircraft. To this end, aircraft are broken down into noise classes.

•

If a residential property is located within the Noise Disturbance Plan (PGS), the building permit was issued before the Noise
Exposure Plan (PEB) was approved and the property has not already been soundproofed, then one is eligible for noise
protection aids. Applications are submitted to the airport.

Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit Enforcement

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Country context - 1
Italy
Country context
Measurement and noise limits
Government goals
Spatial planning policy

Italy is characterized by widespread and extensive forms of urbanization: even medium-sized cities are very close to
each other and small towns occupy both the plains and the hills, in some areas almost seamlessly. The population as
well as economic activities, albeit with significant differences between north, center and south, are very distributed and,
especially activities related to tourism, have important concentrations along the very extensive coasts and in the Alps.
The analysis of the airport sites from satellite images shows settlements created quickly and often in disorder,
sometimes with important points of friction with the urbanized territory, evidently arranged to meet the immediate
needs of spaces and operational areas. It is frequently noted that existing buildings are superimposed on facilities
instead conceived to be ordered and balanced, contained in homogeneous perimeters, originally planned for the
foundation of the airports (some of which were born as military) and the relative connections with the territory.

Mitigation measures

The Italian airport system now has a total of 113 airports (11 exclusively military and 102 open to civil traffic).

New data and knowledge

The National Civil Aviation Authority (ENAC) acts as the only authority for technical regulation, certification, supervision
and control in the civil aviation sector in Italy in compliance with the powers deriving from the Navigation Code. To
protect the environment, ENAC monitors the implementation of circulars and regulations aimed at limiting the
environmental impact of airport operations and reducing noise and atmospheric pollution produced by aeronautical
activities.

Noise limit enforcement

According to the 2019 Annual Air Traffic Report published by Assaeroporti (the Association of Italian Airports which
represents 29 Airport Operators for 37 airports), the following traffic data were achieved in terms of passengers,
movements and cargo:
•

Total passengers: 193,1 MLN

•

Total movements: 1,6 MLN

•

Total cargo: 1,1 MLN

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Country context - 2
Italy

Provincial Population Density

In 2019, the 10 busiest Italian airports have been:

BGY
MPX

Country context

TRN

Measurement and noise limits

Airport

Passengers

Movements

Cargo [tons]

Government goals

Rome Fiumicino

43.532.573

309.783

194.526,81

Milan Malpensa

28.846.299

234.054

558.481,48

Bergamo

13.857.257

95.377

118.964,00

Venice

11.561.594

95.232

63.970,20

Naples

10.860.068

82.577

11.750,39

Catania

10.223.113

75.070

5.748,80

Bologna

9.405.920

77.126

48.832,51

Palermo

7.018.087

54.243

1.166,00

Milan Linate

6.570.984

85.730

7.586,01

Rome Ciampino

5.879.496

52.253

18.447,56

Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit enforcement

VCE

LIN

BLQ

FCO CIA

NAP
OLB

PMO

https://assaeroporti.com/dati-annuali/

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Country context - 3
Italy
Country context
Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit enforcement

In the next slides, emphasis will be given to a
particular case - Naples Airport - to more effectively
represent the policy adopted in Italy for the
containment of airport noise.
Naples International Airport (ICAO Code LIRN) is a civil
airport open to military traffic. The airport is located
north east of the city of Naples about 3.24 NM from the
city center; the airport grounds, fall within the territories
of the municipalities of Naples and Casoria and occupy
a total area of 233 ha.
The airport area consists of both urbanization areas
such as those falling within the municipality of Naples,
and areas, falling within the municipality of Casoria,
characterized by the presence of numerous shopping
centers and road and motorway junctions.
https://ambiente.aeroportodinapoli.it/

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How is noise impact measured? Are there any noise limits?
Italy
Country context
Measurement and noise limits
Government goals

Italian legislation requires the use of metric LVA, which stands for “evaluation level of airport noise”. This metric is very close
to the DNL metric, in fact it weights day, evening and night aircraft operations with the same factors used by LVA. The
difference is that DNL is calculated on a yearly basis for an average day and LVA on a 3 weeks basis, chosen in three selected
periods. The LVA index is defined by the following formula:
Where:
N number of days of the observation period
LVAj daily value of the airport noise level.

Spatial planning policy
Mitigation measures

The daily airport noise level is calculated considering all aircraft operations (flyover and on the ground) occurring during
the day. It is determined by the following formula:

New data and knowledge
Noise limit enforcement

Where:
LVAd and LVAn represent airport noise levels measured during daytime (defined from 06.00 to 23.00) and night-time
(defined from 23.00 to 06.00), calculated as follows, where SELi is level of the analyzed sound event - the night period is
10dB(A) more disturbing than the day period:

Twenty-one (21) days are used for the assessment of the LVA index, corresponding to the abovementioned three weeks.
From the following three periods must be chosen, the busiest week, in terms of overall movements:
•1st October – 31st January
•1st February – 31st May
•1st June – 30th September.
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How is noise impact measured? Are there any noise limits?
Italy

LVA index define three different Noise Limit for different surrounding area of Airport defined as zones: “A”, “B” and “C” (see
Spatial Planning Policy).

Country context
Measurement and noise limits
Government goals
Spatial planning policy

On the right, the three Zones A, B and C, defined for
Naples Airport (approved in 2004), are shown.
[https://ambiente.aeroportodinapoli.it/]

Mitigation measures
New data and knowledge
Noise limit enforcement

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How is noise impact measured? Are there any noise limits?
Italy
Country context

The legislation also issued a decree “Norms for monitoring systems”, to supervise noise pollution around airports and to
classify airports on the basis of the measured noise levels. The decree establishes that noise monitoring systems should be
located within the airport surrounding and should be linked with the airport meteorological meteor station in order to
correlate relative meteorological conditions to each flight operation (as set out in the decree dated 31/10/97).

Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit enforcement

These systems should also be able to correlate
the evaluated noise with the radar track as well
as the flight data of the aircraft generating the
noise. The monitoring systems should must be
able to calculate underlying noise, to supply
LVA values and to plot noise contours.
Naples Airport Monitoring Noise System Is
currently comprised of a network of 8 stations
(terminals), some of them are located inside the
airport complex and some in the areas
surrounding the airport under departure e arrival
procedures.
https://ambiente.aeroportodinapoli.it

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Does government set noise goals? How do airports/ANSPs/airlines deliver?
Italy
Country context
Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit enforcement

Periodically, the National Civil Aviation Authority (ENAC), in synergy with the Italian Minister of Infrastructure and
Transport, prepares and approves the National Airport Plan (PNA) with the aim of highlighting new development
opportunities for the country underlining existing criticalities, emerging needs, possible solutions, response methods,
network architecture and the role of individual airports. Given the role and objectives of the PNA, the SEA assessment
must be carried out within the approval process as it provides the tools to integrate environmental considerations in
the formulation of development plans for the territory starting from their early stages.
The noise objectives may concern one or more of the following elements (ENAC APT 26):
a)

minimization of the population affected by the phenomenon;

b)

minimization of the extension of the areas affected by the phenomenon;

c)

minimization of noise in areas characterized by the presence of sensitive receptors such as hospitals, schools,
assistance centers.

In this regard, Airlines must comply with the anti-noise procedures established for the specific airport, while the Airport
Operators must provide for the installation, management and maintenance of the airport noise monitoring system, and
prepares, assuming the costs, the noise abatement plans.

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Does government set noise goals? How do airports/ANSPs/airlines deliver?
Italy
Country context
Measurement and noise limits
Government goals

The Ministerial Decree 31.10.97 defined the establishment of a commission at each of the airports open to civilian traffic
(commonly called "Commission Art. 5“) chaired by the competent director of the airport district (ENAC) and composed
of a representative for each of the following subjects: region, province and municipalities involved; Regional Agency for
Environmental Protection; ENAV, Air carriers, Airport management companies.
The goal of the commissions was to define the noise abatement procedures that are to be adopted with a provision of
the airport manager .

Spatial planning policy

Furthermore, the commissions should have unanimously defined the zones A, B and C discussed above.

Mitigation measures
New data and knowledge

The Commissions took years to define the anti-noise procedures and then zones A, B and C, thus becoming permanent
organs. The main limits of the Art. 5 commissions has been:

Noise limit enforcement

i)

Don't having foreseen a ban on new buildings within zone A

ii)

Don't having incorporated the limits imposed by areas A, B and C into the Noise Planning of Town

iii)

The lack of direct representation of disturbed citizens within the commission

This last point has led to the birth of citizen committees (called No FLY) which have opposed airport development
activities over the years, seeing airport management companies as a counterpart to be opposed.
Airport management companies have had difficulty in managing relations with communities and even ENAC in its
“superpartes” role has shown limits in interacting with a non-institutional subject such as that of citizen committees.
The committees were therefore able to formalize their points of views effectively only within the Environmental Impact
Assessment process that accompanies the airport master plan.

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Is there any spatial planning policy?
Italy

Specific Airport Commissions chosen by the Italian Institute for Civil Aviation (ENAC) are instituted to define three
airport limit zones (“aree di rispetto”) surrounding each airport area:

Country context
Measurement and noise limits
Government goals

Zone

LVA limit [dBA]

Allowed activities

Outside

60

No limitations

A

65

No limitations

B

75

Agricultural, livestock breeding, industrial, trading,
tertiary (no residential areas)

C

No limit

Only activities due to the airport infrastructure

Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit enforcement

Outside the airport zoning, the airport, in addition to guaranteeing a level of LVA lower than 60 dBA, contributes,
together with the other noise sources, to the absolute level of input which is to be compared with the limits of the
municipal acoustic zoning (dictated by DPCM 14-11-1997).
If the noise limits set for the limit zones are exceeded, the interventions envisaged by the Legislative Decree n. 13 of
January 17, 2005 (transposition of the EC Directive 2002/30) are based on the methodology of the Balanced Approach
as defined by ICAO.

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What measures are taken to reduce aircraft noise and who leads these initiatives?

Country context

To reduce the noise impact produced by aircraft, the most used methodology is the Balanced Approach, which consists
of simultaneously adopting various types of measures that help to keep noise pollution levels within acceptable values.
The Balanced Approach is divided into the following components:

Measurement and noise limits

1.

The reduction of noise at the source

Government goals

2.

Land use planning and management

Spatial planning policy

3.

Noise abatement procedures

Mitigation measures

4.

Operational restrictions*

New data and knowledge

Some of these initiatives are implemented by individual airports and then submitted for approval by regulatory bodies.

Noise limit enforcement

In Italy, the Legislative Decree 13/2005 imposes operating restrictions on Italian airports with traffic exceeding 50,000
movements referring to the average of the previous three years. The airports subject to the operational restrictions are:

Italy

* A long legislative dispute
involved the Airports vs. ENAC
and Ministry of Environment to
ban the night flights.
There is currently no general law
to restrict night flights

•

Rome Fiumicino

•

Catania

•

Milan Malpensa

•

Naples

•

Milan Linate (no night mov allowed + 16 is the max number of mov/h)

•

Bergamo

•

Venice

•

•
Bologna
Rome Ciampino (recently the Noise Reduction Plan approved by the Ministry of the Environment imposed a limit
of 65 commercial movements per day for the airport)

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How is new data and knowledge dealt with?
Italy
Country context
Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit Enforcement

The impact of new data and technologies on the territory surrounding each airport is analysed through the Environmental
Impact Assessment (EIA) procedure which must be included in each airport Master Plan.
In addition, the generation of noise conflict maps is indispensable as a support to action plans. The conflict map is the
fundamental element used to identify the areas where the noise limits are exceeded, and it derives from the comparison
between the "airport noise zoning" in force and the noise levels detected or estimated in the event that the reference
traffic scenario that characterizes the airport should undergo changes.

As previously mentioned, the definition of the anti-noise procedures and of the subsequent zones A, B and C was a long
process. The noise abatement procedures initially defined with forecasting software are implemented for an interim
period through specific NOTAM.
Only after this trial period are they adopted definitively. Therefore, a new procedure modeled with provisional SW “ante
operam” is subsequently verified “post operam” with the data of the real flight paths.

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How is new data and knowledge dealt with?
Linate Airport – “Commision Art. 5” Five years of Work

Italy

STEP -1 2006

STEP - 2 2007

STEP - 3 2008

STEP - 4 2009

After two years of works the Noise
Abatment Procedures have been
approved
INM Model n° 18
Route by destination with ECAC
dispersion

Publication of the New Procedure
in the AIRAC cycle (AIP) valid for six
months

Ante Operam Vs. Post Operam
INM Model with real radar
Tracks.

The
Linate
Airport
Commission approved the
acoustic zoning.

Country context
Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit Enforcement

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How is new data and knowledge dealt with?
Italy

It should be noted that zones A, B and C, even if they are often confused with the respective isophonic at 60, 65 and 75 dB (A), are different
from them and represent a sort of acoustic planning that the municipalities should absorb within their acoustic zoning plans.

Country context

Often the Commissions have not applied this concept by confusing isophonics and Zones A, B and C.

Measurement and noise limits

In the event of overruns of the airport zoning, it is the airport's responsibility to comply with the regulatory limits by submitting an acoustic
recovery plan pursuant to the 2000 Ministerial Decree.

Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit Enforcement

However, the complexity of the procedures, the overlap of Italian regulations with European ones*, the number and different objectives of
the bodies in charge have effectively prevented the implementation of these recovery plans (to date only Ciampino airport has been able to
approve an Acoustic Restoration Plan after a long dispute which, as mentioned, limited the maximum number of daily movements to 65).
More often, individual citizens or citizens' committees have resorted to both administrative and civil courts to oppose airport management
companies and Commission (this is the case of Bergamo airport for which Legambiente and some committees of citizens challenged the
approval of the airport’s zoning plan at the competent TAR, having their requests recognized and, on the practical side, affirming the
principle according to which "being the airport zoning a Plan pursuant to art. 5 paragraph 1 letter e) of Legislative Decree 152/2006, and having
an immediate and prevailing preceptive effect on municipal urban planning, it must always be preceded by VAS“ (Strategic Environmental
Assessment as precisely in Legislative Decree 152/2006, initially introduced at European level with Directive 2001/42 / EC).

*Currently, the European legislation implemented in Italy does not provide for restrictions to the values of
Lden reached. In fact, it is a rule of an exclusively cognitive nature of the population and the exposed areas.
It does not provide for acoustic limits, nor limitations to the use of the territory, nor for example any type of
sanction if the number of exposed inhabitants has not been reduced or the "action plan" has not been
followed up, which often results in a list of "good intentions", since the verification of the declared results is
not foreseen.
At the moment there is no provision to replace the LVA metric with the European LDEN metric

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How is new data and knowledge dealt with?

Country context

The compatibility decree (2008) of the Environmental Impact Assessment for Naples Airport - which accompanied the airport
master plan - required an update of the acoustic zoning at least every two years and the relative comparison with the approved
zoning (2004).

Measurement and noise limits

Below we can see the comparison of noise zoning of 2012 with approved zoning of 2004:

Italy

Government goals

https://ambiente.aeroportodinapoli.it

Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit Enforcement

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How is new data and knowledge dealt with?
Italy
Country context
Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit Enforcement

Milan Bergamo Airport • SACBO S.p.A.
The addition of new less noisy aircrafts will be considered for the reduction of noise levels, creating a buffer for the
development of more flight activity.
If it is observed that the acoustic climate is reducing, the airport acoustic zoning will not change. By focusing on taking
advantage of the change in the acoustic climate, in particular on the development of flight activity, it will be needed to
take into account the environmental matrices in order to evaluate the effects, considering that the main environmental
component (noise) should not cause any critical issues.
The modelling tools will be used to supply a rough estimation regarding the acoustic effects produced by flight activity. If
noise limits are not respected, on-site investigations with tools to measure noise levels will verify the overcome of those
limits.
If a new modelling tool introduces noise level variations, those changes will be taken into account in the predictive
evaluations, but they will not be so “dominant” that will significantly influence the choices that have been made in the
past.
Regarding the evaluation of model variations, great attention is given to the comparison with the on-site measured noise
levels. A real calibration is not performed, since the values between the model and the on-site measures were always
good, but the comparison between the measures permits to know the behaviour of the models and it helps for data
interpretation. So, if the results lead to a noise reduction and if the measured levels follow the same trend, then no critical
issue is identified.

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Are noise limits enforced? And how are individual residents protected?
Italy
Country context
Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit Enforcement

•

Law:

The Regional Agencies for the Protection of the
Environment (ARPA) have the task of periodically
checking the efficiency of the airport noise
monitoring system by means of a series of checks on
the instrumentation. If the noise limits set for the
limit zones are exceeded, the required interventions
have been analysed in the previous slides.
•

Voluntary:

Some initiatives to reduce noise are implemented by
individual airports.
For example, SACBO (BGY’s Airport Operator) has in
the past published tenders for the implementation of
mitigation interventions in favor of the residents who
live adjacent to the airport and are exposed to
significant noise levels above 65 dB(A).
Naples Airport introduced (2005) a Noise abatement
procedure for take-offs in the direction of the city of
Naples with some gates to respect. In case of violation
of procedure ENAC after a process of “validation” of
radar tracks made a sanction to Airlines that not respect
the procedure.
https://www.enav.it/

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Are noise limits enforced? And how are individual residents protected?
Italy
Country context
Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit Enforcement

Italy implemented in 2005 with decree n ° 194 the Directive 2002/49 / EC of the European Parliament relating to the
assessment and management of environmental noise.
The Lden index represents a common indicator for
the different European countries and for the
different transport infrastructures and differs
significantly from the LVA previously described.
On the right is showed the Lden index (2016) for the
Naples airport.
https://ambiente.aeroportodinapoli.it

The Italian decree n° 194 doesn’t impose any
restrictions or limits of compliance. However, a
common index can give a useful evaluation of
situation at the European level.
The graphs below (relating to the acoustic
mapping of 2006) show how the various Italian
airports are classified with respect to the major
European airports.
http://eea.eionet.europa.eu

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Are noise limits enforced? And how are individual residents protected?

Country context

The decree DM 29/11/00 “Criteria for the predisposition, from the society and the entities that handle public
transportation services or the related infrastructures, of the action plans for noise abatement and containment” requests
that during the verification of the noise limits in zones related to the infrastructures an Action Plan must be prepared for
decreasing noise levels below the limits.

Measurement and noise limits

The deadlines for airports handlers regarding the Action Plan are:

Italy

Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit Enforcement

• 18 month for the evaluation and verification of the criticalities.
• 18 month for preparation of an Action Plan.
• 5 years for implementing it.
There are some issues regarding the decree:
• It considers just one Action Plan.
• When an Action Plan is prepared, noise receptors will wait 8 years in order to have the noise levels reduced.
• For airport infrastructures the legislation does not define noise limits that have to be respected inside residential
houses, making difficult the application of the single Action Plan that is under direct control of the airport
handler.
• The aspects related to the noise abatement procedures, like routes and air traffic distribution, are applied before
the definition of the activity limits by the Airport Committee, and so the airport handler can’t change them, as
stated in the DM 31/10/97, meanwhile the addition of new modern aircraft is responsibility of the air-carriers,
which update will take an amount of time that is not compatible with the implementation of the plan. At the end
the airport handler is only capable of defining noise abatement procedures or to perform noise mitigation at the
receptor end.
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Are noise limits enforced? And how are individual residents protected?
Italy
Country context
Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures

Outside the Acoustic Zoning, the airport handler must make sure that Lva values do not overcome 60 dB. From the
Municipality responsibility, the airport infrastructure is considered in the overcome of the “Municipality acoustic classification
limits”.
An element that should protect airport handlers is that the municipalities have to absorb the Airport Acoustic Zoning inside
their own Acoustic Zoning, by modifying their Acoustic Zoning in order to make it compatible with Airport zoning.
The National legislation considers a generic compatibility between the two acoustic zoning. Meanwhile, from the
regional legislation it is stated that under the B zone a “Class V” must exists and that under the A zone at least a “Class IV”
must exists. The common sense wants that immediately under the routes there is a “IV class” also outside the acoustic zoning
or at least an “extended Class III”.

New data and knowledge
Noise limit Enforcement

Citizens are protected with forecast evaluations of the acoustic impact that are requested for new buildings, both residential
houses and infrastructures.
Regarding the evaluation for the construction of new residential buildings under air-traffic routes outside the acoustic
zoning, this should lead to a result that is more incompatible than compatible, but the evaluations are “requested and not
binding”.
A citizen can report the overcome of the noise limits to the Municipality, the Municipality has to verify the overcome of the
limits, through the ARPA agency, so that the it will be possible to activate the preparation of the Action Plan, if it is not already
activated.

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Country context - 1
Norway
Country context
Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit enforcement

Avinor is a fully stated own company with the ministry of
transport as it’s only shareholder. They own and operate 43
civil aiports in Norway. Only a handful of airports are
privately owned. Because of long distances within the
country and to other european and international
destinations, air travel is a common occurrence. It has been a
government strategy for several decades to connect remote
parts of the country using short runway airfields and
subsidizing certain routes.
Oslo airport is by far the most trafficated airport with 20% of
all aircraft movements (2021). Pre-pandemic this was around
30%
A large part of Norways populations is exposed to noise
through industry and transport infrastructure. Around 40%
of the population lives in areas where they can be bothered
by noise. However, by far the most nuisance comes from
road traffic. Only around 43 500 of people or 0.8% of the
population live in areas with 55 dB(A) Lden stemming from
aviation noise.

Amount of people (1000x) exposed to noise above 55 dB(A) Lden.
Blue = road traffic Green = railways Light green = Aviation Gray = Industry Orange = Others

People living around Stavanger, Trondheim, Bodø and
Tromsø are generally far less annoyed by aircraft noise than
what’s found in international literature. Inhabitants around
Oslo airport are less tolerant, but still more tolerant than
similar airports internationally.

Change in noise and traffic level between 2000-2021

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Country context - 2
Norway

At more than half off all aiports there are no one exposed to nuisance from airports. This can be explained by Norway’s extensive STOLport
network (Short Takeoff and Landing) where there is a limited number of movements with smaller aircraft.

Country context

Because of the extensive maritime activity on the west coast Norway is one of the few coutnries where helicopter noise causes significant
nusiance. To ferry people offshore heavier transport helicopters are used.

Measurement and noise limits

Aircraft Movements 2021

Government goals
Hammerfest

Spatial planning policy

Ålesund/Vigra
Kristiansand/Kjevik

Mitigation measures

Sandefjord Torp
Bodø

New data and knowledge

Tromsø/Langnes

Noise limit enforcement

Trondheim/Værnes
Stavanger/Sola
Bergen/Flesland
Oslo/Gardermoen
0

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20,000

40,000

60,000

80,000 100,000 120,000 140,000

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How is noise impact measured? Are there any noise limits?
Norway
Country context
Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit enforcement

Two noise metrics are used for regulatory purposes, the Lden
and the L5AS, The latter being used as a nighttime noise metric.
For outdoor noise from aviation two noise contours are created
called the «yellow zone» and the «red zone». The yellow zone is
defined by the for Lden > 52 dB and L5AS > 80 dB while the red
zone Lden > 62 dB and L5AS > 90 dB
These zones are used for spatial planning purposes and are
defined in «T-1442/21 Retningslinje for behandling av støy i
arealplanlegging» (Guidelines for the management of noise for
spatial planning)
The noise zone maps are calculated based on the current traffic
situation and a future prognosis 10-20 years ahead. The union
of the two scenarios is sent over to the municaplity (kommune).
A custom version of the INM software is used for the
calcuations which is more accurate with topographic variations.
Forurensningsloven (The Pollution Control Regulations)
mandates the mapping of indoor noise down to 35 dB LpAeq,24h
for dwellings, kindergardens, educational facilities and health
facilities. If the noise level is above 42 dB LpAeq,24h for existing
buildings noise reducing measures must take place.

An improved version of INM called NORTIM is used for noise
calculations.

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Does government set noise goals? How do airports/ANSPs/airlines deliver?
Norway
Country context
Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit enforcement

The government has set a goal of reducing noise with 10% compared to 1999 levels using the noise metric SPI (noise
nuisance index) from industry, road traffic, railways, construction and motorsport. The metric only considers a specific
geographic area and of dwellings exposed to noise in 1999. It does not take into account population growth, relocation,
or new dwellings in other noise exposed areas. Therefore, the metric doesn’t reflect the true magnitude of noise
nuisance over time.
This noise goal has however not resulted in specific noise reducing policies for airports. Avinor does provide the data
for the central government to calculate the metric.
SPI is calculated by multiplying the amount of people exposed to difference noise levels with the average nuisance
level for that noise level. Nuisance level is categorized from “low nuisance”, “some nuisance”, “high nuisance” and “very
high nuisance”. The index takes into account different noise levels, units and the properties of the noise source.
The government has also set a goal of reducing the amount of people exposed to 38 dB(A) indoors close to roads,
airports and railways with 30% within 2020 compared to 2005. However, until 2019 the noise increased 30%, mainly
from road traffic. The noise from airports decreased by mainly changing the departure and approach routing into the
Oslo Airport, use of quieter aircraft and sound isolating dwellings.
It’s mainly the Norwegian CAA (luftfartstilsynet) together with Avinor that work together to reduce noise, with the
ministry of transport as their reporting body.

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Is there any spatial planning policy?
Norway

•

The main document relating spatial planning and noise exposure is «T-1442/21 Retningslinje for behandling av støy
i arealplanlegging» (Guidelines for the management of noise for spatial planning). This document defines the
yellow and red noise zones for different types of noise sources. It’s used both for exisiting noise sources as well as
the establishment of new ones.

•

It’s the responsibility of the owner of the noise source to create noise exposure maps showing the yellow and red
noise zones.

•

There is a politcal initative to build houses around traffic hubs, including airports. However noise concerns have not
been fully adressed yet.

Country context
Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures

Oslo Airport

New data and knowledge
Noise limit enforcement

Red zone

Yellow zone

•

•

•
•

Not suitable for noise sensitive use purposes
such as schools, kindergartens, dwellings,
cottages, and new buildings with a noise
sensitive purpose.
New buildings with a noise sensitive nature
should not be allowed in this zone.
Existing dwellings should get the option of a
buy-out. If undesired by the owner, the house
must be sound isolated to achieve an indoor
noise level of LAeq24 42 dB. However, buy-outs
are preferred since dwellings are unwanted in
the red zone.

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•
•

An assessment zone where new budlings
with a noise sensitive purpose can be
constructed if noise mitigation gives
satisfactory noise conditions.
Sound isolation is a commonly used tactic for
existing buildings in this zone.
The municipality should weight the pros and
con’s of establishing new a noise sensitive
buildings.

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What measures are taken to reduce aircraft noise and who leads these initiatives?
Norway
Country context
Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit enforcement

The main way noise is managed in Norway is almost exclusively through laws, regulations and guidelines for different
sources of noise, including air transport. Regulation is mainly directed towards the owner of the noise source. For
aiports, Avinor as the owner of most aiports in Norway is responsible for following the noise regulations, creating the
noise exposure maps and paying for mitigating measures. Economic incentives are seldomly used as means to reduce
or manage aircraft noise.
There are no limitations on the size of the noise contour, but Avinor still strives to limit noise through its own initatives.
They believe this will cause good relationships with their neighbours and that the regulator will be more lenient with
any future noise regulations.
There is special noise regulation for Oslo Airport, the largest airport in Norway by a large margin. It regulates runway
use, restricts what part of the airspace can be used during day and nighttime. It also restricts use of certain aircraft
based on their noise certification. It also allows for the use of curved approaches.
Nighttime flights (between 24:00 and 06:30) must pay an additional 50% of their start or landing fee.
Avinor’s work on reducing aircraft noise generally extends further than what the government mandates. One of their
strategic goals is to reduce noise for people living around their aiports. Some of the measure they can consider based
on expected future noise nuisance can be:
•
•
•
•

Changing procedure for departure and landing
Changing preferential runways
Restricting certain typed of aircraft
Increasing the amount of curved approaches

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How is new data and knowledge dealt with?
Norway
Country context
Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit Enforcement

The spatial planning regulations stipulate the owner of the noise source to update the noise zone maps every 10 years
to see if the current situation or future prognosis has changed.
Noise analysis must always be done with the latest version of the NORTIM software to make sure the latest aircraft types
are included. The regulation states that the software uses the aircraft database of FAA which it recognizes is being
constently updated, but does not state how to deal with major changes to the noise contours. Noise data of certain
aircraft types have been adjusted to reflect on ground measurements.

By measuring the noise impact of certain noisy helicopter types, the calculation methods have been adjusted to be
accurate.
Oslo airport has their own version of NORTIM called RADTIM which used the flightpath and noise monitoring system to
accuratly estimate flight paths and profiles for use in the noise calcuations. The noise monitoring system has also been
used to verify the noise calculations. Because the measured and calculated values have been found to to correspond
there has been no need to update the calculation models based on measurements.

Another version of the software REGTIM is used for regional airports while NORTIM is used for the remaining airports.
Here the published AIP tracks are used as input. In REGTIM simplifications such as grouping of aircraft based on
perfmance and noise are made.
Any changes to the calculation methods are discussed with the Norwgian CAA and EPA. For example the introduction
of the fourth edition of ECAC document 29 was discussed.

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Are noise limits enforced? And how are individual residents protected?
Norway
Country context
Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge

The high-level government goal of reducing noise using the SPI index was not met in 2020. However, the goal was not
part of the law and therefore did not carry any legal obligations.
Noise limits are mainly enforced through the spatial planning policy. The noise exposure maps created are shared by
the airport with the local municipality which is responsible for the arial planning. In the municipalities arial planning
they will usually touch upon dwellings or other facilities that will need noise reducing measure to comply with the noise
limits.

Also, when applying for or renewing an airport operating lisence through the norwegian CAA (luftfartstilsynet) noise
calculations according to the T1442/21 guidelines must be included. Local governments can also come with input, e.g.
about the opening hours of the airport. The airport must also agree with the local governments about the departure
and arrival routes to and from the airport.

Noise limit Enforcement

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Country context - 1
Sweden
Country context
Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit enforcement

In Sweden, the Swedish Environmental Protection Agency has a designated responsibility for specifically coordinating
the authorities' work regarding environmental noise.
Authorities that deciding, and publishing goals, limits and guidelines
• Swedish Environmental Protection Agency
• Governmental decisions
• Public Health Agency of Sweden
• Swedish National Board of Housing
• Environmental Court + appeals body
In Sweden it’s normal to calculate noise exposure and then follow up with random measurements.
About 13 000 people are expose to FBN = Lden over 55 dB(A) from civilian aiports
Airborne noise calculations are often performed to be used as a basis for environmental assessments of airports and
building planning around airports.
Swedavia is a Swedish state-owned company, which owns and operates ten of Sweden's busiest airports.
The Swedish Transport Agency, the Swedish Armed Forces and the Swedish Environmental Protection Agency have
established a quality assurance document that contains the calculation method for aircraft noise which is to ensure a
uniform application in Sweden. ECAC Doc 29 is the basis for these noise calculations.

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Country context - 2
Sweden
Country context
Measurement and noise limits

Passengers at the 10 busiest airports in Sweden 2021

Government goals

Kiruna Airport

Åre Östersund Airport

Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit enforcement

Skellefteå Airport
Visby Airport
Umeå Airport
Luleå Airport
Stockholm Bromma Airport
Stockholm Skavsta Airport
Malmö Airport
Göteborg Landvetter Airport
Stockholm Arlanda Airport
0

1,000,000

2,000,000

3,000,000

4,000,000

5,000,000

6,000,000

7,000,000

8,000,000

Pax

Population density of Sweden

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How is noise impact measured? Are there any noise limits?
Sweden

Sweden use the same noise metrics across all airports independent of size. However, because of data limitations at some
airports traffic input is adapted for local availability of data. Also, different airports may have different limits based on the decision of the
environmental courts.

Country context

Noise metrics used

Measurement and noise limits

•

Lden = FBN = FBNEU

•

LAmax

•

Leq

•

Lnight (Only used to report to the EU)

•

TFBN = TDENL (Only used at one airport)

Government goals
Spatial planning policy
Mitigation measures

Limits dwellings
New data and knowledge

•

FBN 55dB(A) outdoors

Noise limit enforcement

•

LAmax 70 dB(A) outdoors, which may be exceeded N times. N=16 during average day/evening and 3 during average night according to a government regulation
“Förordning (2015:216)”. However, the value of N is set differently between airports depending on decisions from the Environmental courts.

•

Leq,24h 30 dB indoors

•

LAmax 45 dB indoors. The value of N is set differently between airports depending on decisions from the Environmental courts.

Other areas
•

Outdoor where silence is important FBN 40 dB(a)

•

Indoors in hospitals, schools, offices, hotels and restaurant according to Swedish standard SS 25268:2007. Depends on type of room
and noise class
•
Hospitals: Leq 26-45 dB(A) and LAmax (Fast) 41-60 dB(A)
•
Schools: Leq 26-45 dB(A) and LAmax (Fast) 35-60 dB(A)
•
Offices: Leq 30-45 dB(A) and LAmax (Fast) 45-60 dB(A)
•
Hotels and restaurants: Leq 26-45 dB(A) and LAmax (Fast) 41-60 dB(A)

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Does government set noise goals? How do airports/ANSPs/airlines deliver?
Sweden
Country context
Measurement and noise limits

The parliament has approved 16 environmental goals for which one is having a “Good built environment”. One of the
definitions of this goals it that “people are not exposed to harmful air pollutants, chemical substances, noise levels and
radon levels or other unacceptable health or safety risks”. Based on these goals the regional and local governments create
their own goals. However, the government has not directly set any noise goals regarding airport noise.

Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit enforcement

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Is there any spatial planning policy?
Sweden
Country context
Measurement and noise limits
Government goals
Spatial planning policy

According to the Environmental code mitigating measures must be taken if noise limits are exceeded. Swedavia uses
sounds insulation as a measure when the indoor sound levels are beyond the limits.
According to the environmental code, the airports must annually evaluate the need for noise isolation measures based
on the previous year's air traffic. If the noise contours grow or change, property that is currently outside the contour
may need measures in the future. The property owner is then contacted by Swedavia.
Noise limits for new buildings are regulated in the Swedish regulation 2015:216

Mitigation measures
New data and knowledge
Noise limit enforcement

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What measures are taken to reduce aircraft noise and who leads these initiatives?
Sweden

Sweden follows the ICAO balanced approach with the following entities responsible for each part of the approach.
The creation of aircraft noise policy is divided between these agencies, each responsible for their own domain.

Country context

ICAO balanced approach and measures

Measurement and noise limits

Reduction of noise at source

Government goals

Stringency in ICAO Noise standards (Annex 16)

Responsible entity

Swedish Transport Agency

Spatial planning policy
Mitigation measures

Operating Restrictions

New data and knowledge

For example prohibition against noisier aircraft, certain runway use, certain time of
the day/night.

Noise limit enforcement

Environmental courts

Swedish Transport Agency

Noise Abatement Operational Procedures
Design of departure and arrival routes (laterally as well as profiles) could have an
interdependency with accessability and emissions. There are trial with curved
approaches at several of Swedavia’s airports.
Swedish CAA

Swedish Transport Agency

Land-Use planning and management
Noise insulation of houses, land-use planning.
Swedish Transport Administration

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Environmental courts

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How is new data and knowledge dealt with?
Sweden
Country context

Swedavia creates tracks using ANOMS, a tool used to plan, monitor and mage noise at their airports. Because INM was
being phased out Swedavia started evaluating AEDT, but no further updates on this development are found. There are
a number of private airport owners which might use different tools.

Government goals

However, there is no specific software which is mandated to use when calculating noise. As long as the quality
assurance document (kvalitetssäkring av flygbullerberäkningar) is used as the basis for the calculation which is based
on ECAC Doc 29. This ensures a uniform calculation method in Sweden.

Spatial planning policy

Information on how any differences in input data or updates to aircraft noise models is dealt with could not be found.

Measurement and noise limits

Mitigation measures
New data and knowledge
Noise limit Enforcement

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Are noise limits enforced? And how are individual residents protected?
Sweden
Country context
Measurement and noise limits
Government goals
Spatial planning policy
Mitigation measures
New data and knowledge
Noise limit Enforcement

A land and environmental court (MMD) is in Sweden a special court whose main task is to handle cases and matters in
accordance with the provisions of the Environmental Code , the Property Development Act (1970: 988) and the
Planning and Building Act (2010: 900) and are subordinate to the regular courts. This means the courts have jurisdiction
of some limits regarding aircraft noise. For example, the Swedish Transport Administration considered the outdoor FBN
noise limit to be 60 dB(A) which was overturned by the Environmental Court to 55 dB(A)
The limits vary from airport to airport depending on the environmental courts' decision. The number of times a certain
metric can be exceeded both indoors and outdoors (LAmax ) can therefore change. The environmental courts are used to
enforce the noise limits. If the airport wants to obtain a permit or change the current one, they must go through the
court where any party is able to object to the proposed changes. Since environmental courts are part of the normal
court system citizens can also petition the court.
The courts also specify the need for noise mitigation
measures if the limits are exceeded, and the timeframe
it these should be implemented.

Example of noise map made for Arlanda
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Measurement & noise limits
Germany

France

United Kingdom

Australia

Switzerland

Italy

Norway

Sweden

Noise index
(primary)

LAeq, day
LAeq, night

Lden

LAeq,16hr daytime
LAeq,8hr nighttime

ANEF

Lrt
Lrn
Lrk

LVA

Lden
L5AS

FBNEU (Lden)
Leq
LA,max

Threshold

55 dB(A) LAeq, day
50 dB(A) LAeq, night

50 dB(A) Lden

54 dB(A) LAeq, 16hr
48 dB(A) LAeq, 8hr

20 ANEF

53 dB(A) Lrt
43 dB(A) Lrn
50 dB(A) Lrk

60 dB LVA

Lden > 52 dB
L5AS > 80 dB

55 FBNEU = Lden

For information
purposes:
50 dB(A) LAeq, day
40 dB(A) LAeq, night
Noise index
(secondary)

NAT
LA,max

When assessing
change:
51 dB(A) LAeq, 16hr
45 dB(A) LAeq, 8hr
Lnight

Lday
Levening
Lnight
Lden
LAeq,6.5hr night
N6516hr day (annual)
N7016hr day (annual)
N608hr night (annual)

N60, N65, N70

Aviation Consultants

Lden

Lnight
TFBN = TDENL

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Government goals (1/2)

Scenario
(Growth / Equal /
Decrease)

Germany

France

United Kingdom

Australia

Switzerland

Italy

Norway

Sweden

Equal / decrease

Not specified

Not specified

Not specified

Not specified

Not specified

Decrease

Not specified

10-yearly update
of protection
zones. Noise and
annoyance levels
may only be equal
or lower than in
the previous
iteration

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Government goals (2/2)

Goals

Germany

France

United Kingdom

Australia

Switzerland

Italy

Norway

Sweden

Not specified

Halve the noise
perceived by the
populations
overflown in the
Paris region

Taking decisions on the
right balance between
noise controls and
economic benefits,
reconciling the local
and national strategic
interests

Driven by the
result of
political
influence
stemming from
organised
community
action

Limit noise at
source to promote
population health,
especially in the
urban environment

Highlighting new
development opportunities
for the country underlining
existing criticalities,
emerging needs, possible
solutions, response
methods, network
architecture and the role of
individual airports in the
National Airport Plan (NPA)

Reducing
noise with
10%
compared
to 1999
levels using
the noise
metric SPI

People are not exposed
to harmful air pollutants,
chemical substances,
noise levels and radon
levels or other
unacceptable health or
safety risks. Based on this
main goal, regional and
local governments
create their own goals.

Transition to ‘
greener’
government

Improve
soundproofing
assistance for local
residents

Setting (and
maintaining) noise
controls at specific
airports for noise
management purposes
Changes to
compensation policies
with the expectation
that airport operators
will offer households
exposed to levels of
noise of 69 dB LAeq,16hr
or more, assistance
with costs of moving or
full insulation

Aviation Consultants

The national
commission on
noise abatement
has published its
report in December
2021 and proposes
to at least double
the effected area
when taking a noise
limit. The project
will run for the next
few years.

Minimization of the
population affected by the
phenomenon
Minimization of the
extension of the areas
affected by the
phenomenon
Minimization of noise in
areas characterized by the
presence of sensitive
receptors such as hospitals,
schools, assistance centers.

Reducing
the amount
of people
exposed to
38 dB(A)
indoors
close to
roads,
airports and
railways
with 30%
within 2020
compared
to 2005.

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Spatial planning policy (1/3)
Zones

Germany

France

United Kingdom

Australia

Switzerland

Italy

Norway

Sweden

Daytime
protection zone 1
(06:00-22:00)

Zone A:
Unbuildable
Zone B:
Unbuildable
Zone C:
Constructions
authorized under
conditions
Zone D:
Constructions
authorized after
soundproofing

Local planning
policies and
decisions in line
with UKs National
Planning Policy
Framework (NPPF)

Acceptable

FOCA forms a
federal sector plan
for infrastructure
planning to ensure
space for airports
to develop
business plans.

Outside:
No limitations

Yellow zone:
Buildings with a
noise sensitive
purpose can be
constructed if
noise mitigation is
satisfactory.

Noise limits vary
from airport to
airport depending
on the
environmental
courts' decision.
The number of
times a certain
metric can be
exceeded both
indoors and
outdoors (LAmax )
can therefore
change

Daytime
protection zone 2
(06:00-22:00)
Nighttime
protection zone
(22:00-06:00)

Conditionally
Acceptable
Not acceptable

Sensitivity level 1:
Higher noise
abatement
requirements
Sensitivity level 2:
Ops emitting noise
are not permitted

Sensitivity level 3:
Ops emitting
certain noise level
are permitted

Zone A:
No limitations
Zone B:
Agricultural,
livestock
breeding,
industrial, trading,
tertiary (no
residential areas)
Zone C:
Only activities due
to the airport
infrastructure

Red zone:
Not suitable for
noise sensitive
use purposes.
Option of buy-out
or insulation of
indoor noise level
of 42 dB LAeq24

Sensitivity level 4:
Ops emitting a
high level of noise
are permitted

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Spatial planning policy (2/3)
Noise limit
daytime

Germany

France

United
Kingdom

Australia

Switzerland

Italy

Norway

Sweden

Daytime
protection
zone 1:
60 dB(A) LAEQ
for new /
expanding
airports
65 dB(A) LAEQ
for existing
airports

Zone A:
Lden >
70dB(A)

54 dB Laeq,

Depends
on building
type.
Between 20
and 40
ANEF.

Planning value /
Impact Threshold /
Alarm value

Outside:
60 dB(A) LVA

Yellow zone:
Lden > 52 dB

Outdoor:
55dB(A) FBN

Zone A:
65 dB(A) LVA

Red zone:
Lden > 62 dB

70 dB(A) LAmax which may be exceeded 16 times.

Daytime
protection
zone 2:
55 dB(A) LAEQ
for new /
expanding
airports
60 dB(A) LAEQ
for existing
airports

Zone B:
70 > Lden >
62-68
Zone C:
62-68 > Lden
> 52-64
Zone D:
62-64 > Lden
> 50

16hr

Sensitivity level 1:
53/55/60 dB(A) Lrt
Sensitivity level 2:
57/60/65 dB(A) Lrt
Sensitivity level 3:
60/65/70 dB(A) Lrt
Sensitivity level 4:
65/70/75 dB(A) Lrt

40 dB(A) FBN where silence is important
Zone B:
75 dB(A) LVA
Zone C:
No limit

Indoor:
30 dB Leq, 24h
45 dB LAmax
40 dB(A) FBN
in hospitals, schools, offices, hotels and restaurants.
Depends on type of room and noise class
Leq 26-45 dB(A) and LAmax (Fast) 41-60 dB(A) in
hospitals

Leq 26-45 dB(A) and LAmax (Fast) 35-60 dB(A) in schools
Leq 30-45 dB(A) and LAmax (Fast) 45-60 dB(A) in offices
Leq 26-45 dB(A) and LAmax (Fast) 41-60 dB(A) in hotels
and restaurants

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Spatial planning policy (3/3)

Noise limit
nighttime

Germany

France

Nighttime
protection zone:
50 dB(A) LAEQ
6 x 68 dB(A) LAMAX
for new /
expanding
airports

Zone A:
Lden > 70dB(A)

55 dB(A) LAEQ
(nighttime)
6 x 72 dB(A) LAMAX
(nighttime) for
existing airports

United Kingdom

Australia

Switzerland
Planning value /
Impact Threshold /
Alarm value

Zone B:
70 > Lden > 62-68

Sensitivity level 1:
43/45/55 dB(A) Lrt

Zone C:
62-68 > Lden > 5264

Italy

Norway

Sweden

Yellow zone:
L5AS > 80 dB

Outdoors:
LAmax 70 dB(A)
which may be
exceeded 3 times

Red zone:
L5AS > 90 dB

Sensitivity level 2:
47/50/60 dB(A) Lrt
For first night hour:
50/55/65 dB(A) Lrt

Zone D:
62-64 > Lden > 50

Sensitivity level 3:
50/55/65 dB(A) Lrt
Sensitivity level 4:
55/60/70 dB(A) Lrt

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Mitigation measures (1/2)
Germany

France

United Kingdom

Australia

Switzerland

Italy

Norway

Sweden

ICAO Balanced
Approach

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Initiative leader

Airports

CAA /
government /
airports

The government
for measures
concerning aircraft
types, noise and
emission taxes and
night curfews.

CAA /
government /
airports

CAA / Airport
Operator

CAA / airports /
transport agency /
transport
administration /
environmental
courts

CAA, ANSP,
airports

Nordic workgroup
for aviation
environment
(N-ALM)
representating
CAAs, ministries
and airports of
Nordic countries

Nordic workgroup
for aviation
environment
(N-ALM)
representating
CAAs, ministries
and airports of
Nordic countries

Airports for local
measures, such as
limitations.
Coordination /
consultation /
engagement

Airports liaise with
airlines, ANSPs
and local
communities

French CAA,
airport operators,
regional
authorities, ANSP,
local communities

Noise forum with
airports, airlines,
CAA and
community
groups

Aviation Consultants

Interactive
platforms, e.g. for
Genève Aéroport

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Mitigation measures (2/2)

Measures

Germany

France

United Kingdom

Australia

Switzerland

Italy

Norway

Sweden

Low-noise takeoff and landing
procedures

Urbanisation
control

Development
planning
decisions

Attenuation
programs
(double glazing,
insulation)

Noise abatement
programs

Noise reduction at
the source

Noise reduction at
the source

Noise reduction at
the source

International
cooperation
relationship

Land use planning
and management

Changing
preferential
runways

Land use planning
and management

Sound-proofing
Regulations on
night flights.
CDO ops for
several airports

Noise abatement
flight procedures
Noise evolution
monitoring

Quieter aircraft
development
encouragement
Supporting
airport operator in
enforcing noise
policies.
CAA airspace
management

Lobbying for
operational
restrictions

Noise abatement
programs
Fly neighbourly
agreements
Covenants on
land titles

Promotion of areas
of tranquility and
refreshment for the
development of
settlements
Modernization of
noise monitoring
Increase public's
awareness
Time slot limitation
and freeze on takeoffs and landings at
night

Aviation Consultants

Noise abatement
procedures

Operational
restrictions

Aircraft type
restrictions
Changing the
opening hours of
airports

Noise abatement
procedures

Operational
restrictions

Transferring air
traffic to other
airports
Special noise
regulations for
Oslo

114

New data & knowledge
Germany
The noise calculation method to determine the noise protection areas is prescribed in the
Fluglärmgesetz under “Instructions on the Calculation of Noise Protection Areas, ICN”
The German Act for Aircraft Noise Protection from 2007 is the product of all the latest
knowledge (from as far back as 1971) on noise protection.
DLR will determine new calculation input parameters

Aviation Consultants

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Noise limit enforcement (1/3)

Protection

Germany

France

United Kingdom

Australia

No hospitals or elderly care homes in
protection zones

Denoting land around airports as nonsuitable for development of noise
sensitive buildings

NPPF requires noise to be considered for
developments

Denoting land around airports as nonsuitable for development of noise
sensitive buildings

No construction of new dwellings in
daytime protection zone 1 and
nighttime protection zone
Cost of soundproofing is covered for
existing dwellings in daytime
protection zone 1 and nighttime
protection zone

The buyer of a residence within the
noise contour should receive
information on noise exposition and
the info must be made publicly
available

Developments in noise sensitive areas
(69 or 63 dB LAeq,16hr ) are not explicitly
prohibited

Noise complaints and monitoring
stations may be used to implement
mitigations

Individuals are protected by specific
regulations that are in place for specific
noise contours and are based on
research

Compensation for installation of a
ventilation system in dwelling rooms in
nighttime protection zone primarily
used for sleeping

Different compensation schemes for
sounds insulation depending on the
protection zone a dwelling resides in

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Noise limit enforcement (2/3)
Protection

Switzerland

Italy

Norway

Sweden

Complaints are handled by the airports
& cantons

The Regional Agencies for the
Protection of the Environment (ARPA)
periodically check the efficiency of the
airport noise monitoring system

Municipalities, responsible for arial
planning, will usually touch upon
dwellings or other facilities that require
noise reducing measures to comply with
noise limits

The environmental court has
jurisdiction of aircraft noise

If airports are not able to stay within
defined noise contours in force, they
have to make a new demand to FOCA
for enlargement of the contours. There
is the possibility for the community to
react and complain in this process

Forecast evaluations are made to
assess the acoustic impact on new
buildings, both residential houses and
infrastructures.

Airports with commercial flights can be
granted exemptions by FOCA, but
noise protection measures (such as
insulation programs) must be taken

The airport must agree with local
governments on departure and arrival
routes

If an airport wants to change the
current ruling, they must go through
the environmental court where any
party is able to object to the proposed
changes

To reduce noise exposure, several
smaller airport have limited opening
hours and limits on the number of air
traffic movements

There are clear rules in place under
which conditions delayed aircraft can
land at an airport
Noise protection aids are available
under conditions and paid by airport
operators
A component of the landing fee is
dependent on noise

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Noise limit enforcement (3/3)

Enforcement

Germany

France

United Kingdom

Australia

Switzerland

Italy

Norway

Sweden

The Ministry has
the power to
reject or change a
requested change
in operation (e.g.
reduce number of
flights or
operational
changes) if
deemed
necessary for
noise protection
purposes (within
the noise
protection zones)

Unknown

Unknown

Adherence to
mitigation
strategies is
policed by the
ANSP.
Incompliance
may lead to
sanctions

DETEC is
responsible for
enforcing emission
limitation
measures,
improvements and
the determination
and control of
noise exposure
levels

ENAC sanctions
airlines that,
according to radar
track validation,
do not adhere to
noise abatement
procedures

Unknown

The
environmental
courts enforce
noise limits

Aviation Consultants

In the event of
overruns of the
airport zoning,
airports must
submit an
acoustic recovery
plan

The courts also
specify the need
for noise
mitigation
if the limits are
exceeded and the
timeframe in
which it must be
realised

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To70 Aviation
Amsterdam, Brussels, Frankfurt, Geneva, London, Milan
Bangalore, Bangkok, Shanghai, Singapore
Brisbane, Melbourne
Medellín, São Paulo
Montreal

Aviation Consultants

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