Government resolution on noise abatement - REPORTS OF THE MINISTRY OF THE ENVIRONMENT 7en
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REPORT S O F T H E M I N I S T RY O F T H E E N V I RO N M E N T 7e n | 2007 Government resolution on noise abatement MINISTRY O F T H E E N V I RO N M E N T
REPORTS OF THE M I N I S T RY O F T H E E N V I RO N M E N T 7 en| 2007 Government resolution on noise abatement Helsinki 2007 MINISTRY OF THE E N V I RO N M E N T
REPORTS OF THE MINISTRY OF THE ENVIRONMENT 7 | 2007
Ministry of the Environment
Environmental Protection Department
Layout: Niina Silvasti
Translation: PasaNet Oy
Language editing: Terry Forster
Cover photograph: Plugi/ Jukka Tiippana
This publication is also available on the Internet at:
http://www.environment.fi > Publications
ISBN 952-11-2931-5 (PDF)
ISSN 1796-170X (network publication)
Reports of the Ministry of the Environment 7en | 2007INTRO DUCTION
In accordance with the Government Programme of Prime Minister Matti Vanhanen
(2003-2007), the Finnish Government is to issue a resolution on a national noise abate-
ment action programme.
On 22 April 2004 a working group consisting of representatives from government
agencies and organisations with a key involvement in noise abatement submitted its
report entitled ‘National Guidelines and Action Plan for Noise Abatement’ (Finnish
Environment 696/2004) to the Ministry of the Environment.
This Government resolution, which is based on the recommendations for practical
levels of noise abatement proposed by the working group in question, sets out the
general objectives, targets and methods to reduce noise emissions and the harmful
effects they cause. A further aim is closer cooperation between the various state au-
thorities and the local authorities. The resolution emphasises the importance of inte-
grating noise abatement measures into the planning and implementation of activities
that cause noise in order to prevent noise problems and reduce existing disruptions
and disturbances from noise emissions.
The resolution applies to environmental noise. Problems addressed by legisla-
tion on health protection and health and safety at work lie outside the scope of this
enquiry.
Reports of the Ministry of the Environment 7en | 2007 Reports of the Ministry of the Environment 7en | 2007
CONTENT
Introduction........................................................................................................................... 3
Content................................................................................................................................... 5
GOVERNMENT RESOLUTION ON NOISE ABATEMENT
Noise abatement objective and targets........................................................................ 7
Noise abatement methods............................................................................................ 8
Strategic noise maps and noise abatement action plans ......................................... 8
Land use and traffic planning...................................................................................... 8
Reducing noise emissions............................................................................................. 9
Housing construction and renovation........................................................................9
Noise abatement guidance, research and training....................................................9
Implementation and monitoring of the resolution.................................................. 10
Baselines for the Government Resolution
Exposure to noise in Finland...................................................................................... 11
Exposure to noise in other Member States of the European Union...................... 12
Changes in the operational environment.................................................................12
Noise abatement legislation ...................................................................................... 13
Noise abatement in the European Union and in certain Member States ............ 14
Aims and main proposals of the resolution.................................................. 16
Noise abatement objectives, targets and methods..................................................16
Reports on noise and noise abatement plans ..........................................................17
Land use and traffic planning.................................................................................... 18
Reducing noise emissions........................................................................................... 19
Housing construction and renovation......................................................................19
Noise abatement guidance, research and training..................................................20
Implementation and monitoring of the resolution.................................................. 20
Impact of the resolution.......................................................................................................... 21
Economic impact.......................................................................................................... 21
Environmental impact................................................................................................. 22
Preparing the case...................................................................................................................... 24
Documentation page.................................................................................................... 27
Reports of the Ministry of the Environment 7en | 2007 Reports of the Ministry of the Environment 7 en| 2007
Government resolution
on noise abatement
Noise is one of the main factors that can have a damaging effect on the quality of the
living environment. One in six Finns is exposed to environmental noise every day,
that is, lives in an area where daily noise levels exceed 55 decibels, the guideline value
proposed by the Government in 1992.
The harmful effects of noise have increased, due especially to the growth of ur-
ban centres, increased traffic volumes and the greater use of noisy machinery and
equipment.
The aim of the resolution is to lower noise levels and reduce exposure to noise. In
order to prevent problems caused by noise and reduce existing levels of disturbance
and disruption, noise abatement measures must be integrated into the planning and
implementation of activities that cause noise.
Noise abatement objective and targets
The objective of noise abatement is a healthy,
pleasant and low-noise living environment.
The target is to reduce exposure to noise so that by the year 2020:
• The number of people living in areas where average noise levels in the daytime
exceed 55 decibels is at least 20% less than in 2003.
• Indoor noise levels do not exceed the Government’s daytime and night-time
guideline values.
• Government guideline values for noise levels are attained in areas intended for
recreation. If this is not possible in built-up areas for reasons of costs or because of
local conditions, the aim would be that noise levels should not exceed 60 decibels
during the day and 55 decibels at night.
Noise abatement measures are to be targeted initially at residential areas where
average daytime noise levels exceed 65 decibels and at areas where the numbers of
those exposed are high.
Apart from residential areas, special attention is to focus on reducing noise levels
in areas where there are educational and care institutions or in recreational areas. The
aim is also to preserve quiet areas.
Reports of the Ministry of the Environment 7 en | 2007 Noise abatement methods
There are several ways to prevent, or reduce, the harmful effects of noise. It should be
prevented at its source, its spread should be curbed, noisy activities should be located
in appropriate areas, and sites that are exposed to noise need to be protected.
Disturbance and disruption due to noise also need to be taken into account when
planning and implementing land use and transport and traffic schemes, and in con-
nection with housing construction, renovation work, and the design, procurement
and use of vehicles and equipment.
Strategic noise maps and noise
abatement action plans
Under the Finnish Environmental Protection Act, municipalities within their terri-
tories must see to the monitoring of the state of the local environment, to the extent
made necessary by local conditions. Furthermore, operators must have sufficient
knowledge of the environmental impact of their activities.
A strategic noise map and noise abatement action plan, as required by the European
Union, are to be drawn up for municipalities with more than 100,000 inhabitants, for
main traffic routes and for large airports by the year 2012. The plans will be imple-
mented in collaboration with the Finnish Road Administration, the Finnish Rail Ad-
ministration, the Finnish Civil Aviation Authority Finavia and other important actors
with responsibility for noise abatement. Additionally, in other municipalities where
there is significant exposure to environmental noise a programme should be drawn
up to reduce the harmful effects of noise. An up-to-date information programme is
to be developed to aid the monitoring of noise levels.
The Road Administration will survey the road network to establish in which are-
as action needs to be taken to reduce noise and it will plan and implement noise
abatement measures in collaboration with the local authorities. Likewise, the Rail
Administration will survey the rail network to establish in which areas action needs
to be taken to reduce noise and it will draw up a noise abatement action programme
together with rail transport operators and the local authorities. At the same time,
Finavia will collaborate with the Finnish defence forces, the local authorities, and
other agencies with responsibility for planning land use to take action to control
disturbance and disruption due to noise from air traffic.
The defence forces are to examine noise from shooting ranges and shooting and
training areas and implement solutions to lessen noise caused in these areas.
Land use and traffic planning
In accordance with the national land use objectives adopted by the Government, land
use planners should work to prevent the harmful effects of noise and reduce existing
levels of disturbance and disruption. New residential areas or other noise-sensitive
activities are not to be located in noisy areas without first ensuring that adequate
noise abatement measures have been taken.
When activities that cause noise are being planned, care should be taken to ensure that
they do not increase exposure to noise and disruption. Sufficient distance should be
left between activities that cause noise and activities which are sensitive to noise.
Land use planners should aim to reduce the need for transport. In urban centres
and residential areas, motor traffic should be reduced by developing pedestrianised
and low-traffic zones.
Reports of the Ministry of the Environment 7 en| 2007The adverse effects of traffic noise should also be prevented, or at least reduced, with,
among other things, analyses of the traffic network, the control of heavy traffic, and
speed and traffic restrictions. Noise from road traffic can be reduced through greater
use of low-noise road surfacing and low-noise tyres. The noise from rail traffic can be
reduced by improving rolling stock and the condition of rails. These measures should
be supplemented, where necessary, with the construction of noise barriers.
In planning the use of land and traffic schemes it needs to be ensured that quiet
areas are preserved for nature recreation purposes and tourism, and that there is an
adequate number of quiet areas for recreation close to areas of human settlement.
Reducing noise emissions
Finland will actively be involved in the European Union in developing noise emission
norms for vehicles and for equipment for outdoor use and stepping up the introduc-
tion and monitoring of such norms at the national level.
The quietest possible solutions should be the goal in the design, manufacture and
purchase of vehicles and equipment. In public procurement, the trend should be to
buy quiet vehicles and equipment.
Disturbance and disruption from noise from construction and maintenance work
can be reduced by developing work methods and using quieter machinery and tools.
There should also be more effective monitoring of the regulations on environmental
protection issued by the local authorities that specifically deal with noise abatement
from construction and maintenance work.
To reduce noise levels, the principles of best available techniques (BAT) and best
environmental practices need to be applied in the modernisation of industrial produc-
tion technology and working methods. These principles are also taken into account
in environmental permit decisions in accordance with the Environmental Protection
Act.
Organisers of events and the local authorities should make sure that noise levels at
leisure events are sufficiently low and that the disturbance from noise is minimal.
Housing construction and renovation
Those responsible for housing construction projects and renovation work should
ensure that noise levels inside buildings do not exceed Government guideline values.
The use of different forms of financial assistance to promote noise abatement should
be looked into, especially interest subsidy loans for renovations to housing compa-
nies’ properties and rented property.
Noise abatement guidance, research and training
The guideline values for noise levels given in the Government resolution need to
be defined more closely and need to be supplemented. The potential for applying
financial instruments in noise abatement should be explored.
The knowledge base on noise and its impact needs to be widened and a research
strategy on noise abatement needs to be drawn up to promote research in the field. It
has to be ensured that the public, the authorities and the different operators have suffi-
cient information on noise, its prevention, its spread and its effects available to them.
Reports of the Ministry of the Environment 7 en | 2007 Specialist training in noise abatement should be developed. Noise abatement issues
should be included in training courses for environmental specialists and land use
planners and in any related professional examinations.
Skill and expertise in noise abatement should be improved by giving supplemen-
tary training on noise abatement to environmental specialists and urban planners.
Implementation and monitoring of the resolution
The aims of the resolution should be taken into account and the measures carried out
in each branch of administration according to spheres of responsibility. The Finnish
regional environment centres will support the local authorities in their efforts to
achieve the objectives of this resolution.
Noise abatement theme packages should be designed and established with money
from the Government’s appropriations framework. In their planning and implemen-
tation the state will aim to work closely with the local authorities.
The Ministry of the Environment will be monitoring the implementation of this
resolution on the basis of the ‘National Guidelines and Action Plan for Noise Abate-
ment’, drafted in 2004 (Finnish Environment 696/2004). An interim evaluation of the
implementation of the objectives in the resolution will be produced in 2011.
10 Reports of the Ministry of the Environment 7 en| 2007Baselines for
the Government Resolution
Exposure to noise in Finland
Some 800,000-900,000 Finns live in areas where daytime noise levels exceed 55 dB
(Exposure to Environmental Noise in Finland – Survey 2005. Finnish Environment
809/2005).
There have been investigations into noise levels in educational and care institu-
tions, but no comprehensive data exist on the levels in these places. Neither is there
adequate information available on noise levels in holiday home areas, recreational
areas and nature protection areas.
Road transport is by far the most common factor in environmental noise. Approxi-
mately 90% of those living in noisy areas reside close to main roads or streets in cities
and towns. Major sources of noise also include rail and air traffic. Other significant
sources are motor-racing circuits, shooting ranges and industry. Noise from industrial
plants and other enterprises varies case by case. An important disturbance factor here
is if these facilities operate around the clock.
The defence forces’ activities are also a source of noise, and are included in the
scope of the Finnish Environmental Protection Act (86/2000). Environmental noise
also results from construction work, street cleaning and major events such as outdoor
concerts.
Table 1. Numbers of people exposed to noise by noise source (Source: Exposure to Environmental
Noise in Finland – Survey 2005. Finnish Environment 809, Helsinki 2005).
Number of residents
Noise source Exposure limit
affected
Main roads 315 500 – 384 500 L Aeq > 55 dB
Streets in towns and cities 393 500 – 430 500 L Aeq > 55 dB
Civil aviation 13 400 – 13 600 Lden > 55 dB
Military aviation 10 300 – 10 500 Lden > 55 dB
Rail traffic 43 500 – 53 000 L Aeq > 55 dB or L Aeq > 50 dB at night
Water traffic and ports 100 - 500 L Aeq > 55 dB
Industry 4 000 – 6 000 L Aeq > 55 dB or L Aeq > 50 dB at night
Civilian shooting ranges 2 000 – 4 000 L AImax > 65 dB
Motor-racing circuits 2 000 – 3 000 L Aeq > 55 dB
Total 782 000 – 908 000
Reports of the Ministry of the Environment 7 en | 2007 11In many places noise levels in the environment are noticeably higher than 55 dB,
which is considered to be the exposure limit. In the busiest urban areas average day-
time noise levels can be up to 70 dB. An average noise level of 65 dB is very common
in urban environments.
Exposure to noise in other Member
States of the European Union
At present no comprehensive international data on exposure to environmental noise
exist. The European Commission commissioned a report in 1994 on noise levels in
different EU countries (J. Lambert, M. Vallet. Study related to the preparation of a
communication on a future EC noise policy. Final report, 1994. LEN Report No. 9420).
As different methods are used to determine them, the values vary from one country
to another, so the findings should be viewed mainly as guidelines. According to the
report, road traffic noise is by far the most significant noise problem everywhere in
Europe. The findings show notable differences between countries. For example, the
number of people exposed to noise levels over 55 dB from road traffic varies from
20% in Denmark to almost 70% in Belgium. The variation is due partly to population
density and urban form as well as differences in the methods used for estimating
exposure. Roughly 60% of the inhabitants of EU countries were believed to live in an
area where noise levels exceeded 55 dB and almost 20% were thought to be in areas
where the level exceeded 65 dB.
Exposure to environmental noise in Finland is less than in many countries in central
Europe but more or less at the same level as in the other Nordic countries, where about
20% of the population live in areas where the noise level is over 55 dB. The exterior
cladding on buildings in the Nordic countries has better sound insulation than that
found in countries in central and southern Europe.
Changes in the operational environment
Any assessment of trends in noise levels up to the year 2020 depends on general
economic forecasts approved by the Government.
The amount and levels of environmental noise will continue to rise steadily as a
result of increases in traffic and the greater mechanisation of activities in the society.
At the same time, more areas will be affected by noise.
The concentration of the regional structure and urban sprawl have been the pre-
dominant trends in development in more recent times. These two phenomena could
result in increased exposure of the population to environmental noise. Urban sprawl
leads to more traffic and, consequently, the need for new routes, which in turn will
bring noise to places where it was absent before. Social policy measures and priorities
also have a decisive impact on how the regional structure, urban form, volumes of
traffic and traffic profiles, and thus noise levels also, develop.
Urban regeneration frequently means additional construction work and turning
former industrial and storage sites into residential areas as well as incorporating are-
as that were previously undeveloped. If new housing will be located in noisy areas,
the number of people exposed to noise could grow unless adequate action is taken
on noise abatement simultaneously.
The latest studies on passenger traffic and logistic reports indicate that people are
tending to travel more and more in their leisure time and that business trips have
12 Reports of the Ministry of the Environment 7 en| 2007become longer. In goods transport the need for the rapid transport of small consign-
ments has increased. These phenomena boost traffic volumes and also traffic noise.
Road traffic is expected to grow by two per cent a year on average. The number of
residents exposed to noise will mainly grow in suburban areas and on the outskirts
of towns and cities as well as alongside city access routes.
By the year 2020 the volume of air traffic at Helsinki-Vantaa airport is expected
to have doubled. Larger aircraft will result in the number of take-offs and landings
increasing at a slower rate than passenger numbers. The air traffic demand at airports
other than Helsinki-Vantaa will vary enormously. The volume of rail transport has
grown on average by one per cent a year and that trend is likely to continue. Further-
more, long-distance passenger traffic is expected to increase steadily.
It is often hard to eliminate noise problems as, on the one hand, noise is caused by
factors such as transport and industry, and, on the other hand, areas of society that
are affected by noise, such as where people tend to live, are a permanent component
in the basic community structure. Reorganising or changing these factors is slow
and costly.
Noise abatement legislation
The main legal provisions on noise abatement are contained in the Environmental
Protection Act (86/2000). Noise is one of the emissions mentioned in the Act that
can cause environmental pollution. The general principles of the Act also apply to
noise abatement. Operators must have knowledge of the environmental impact of
their activities and local authorities must see to the necessary monitoring of the state
of the local environment. An environmental permit is needed for any activity that
poses a threat of environmental pollution. Factors associated with noise abatement
in activities subject to a permit are addressed in permit decisions. Under the Act a
notification must be submitted on any activity or event that causes noise or vibration if
there is reason to suppose that the noise or vibration will be particularly disruptive.
Government decisions on guideline values for noise levels – General Guideline
Values for Noise Levels (993/1992) and Guidelines for Noise Levels caused by Shoot-
ing Ranges (53/1997) – were given pursuant to the Finnish Noise Abatement Act
(382/1987). The decisions aim to prevent noise disturbance and guarantee a pleasant
living environment. They apply in the planning of land use, traffic and transport, and
construction work and in permit procedures for construction work. Since the Envi-
ronmental Protection Act entered into force they have also applied in environmental
permit procedures. The General Guideline Values for Noise Levels are divided into
noise outdoors and noise that carries indoors. The Guidelines for Noise Levels caused
by Shooting Ranges are for outdoor noise only.
Another important law in this area is the Land Use and Building Act (132/1999).
The general objective of this Act is to ensure that land use and construction cre-
ate preconditions for a favourable living environment and that they promo-
te ecologically, economically, socially and culturally sustainable development.
The Act calls for an adequate assessment of the environmental impact, including
noise, when plans are being drawn up. Under the Land Use and Building Act the
state authorities must take the land use objectives adopted by the Government into
account, promote their implementation, and assess the impact of their actions on
regional structure and land use. Regarding aims for land use in urban regeneration
schemes and the living environment, of particular importance is the need to prevent
the harmful effects of noise in those areas and try to reduce existing disturbance and
disruption. New residential areas or other activities that are sensitive to noise should
Reports of the Ministry of the Environment 7 en | 2007 13not be located in noisy areas without first ensuring that adequate noise abatement
measures have been taken. Regulations and guidelines on sound insulation techni-
ques in construction and noise abatement in new construction projects are given in
the National Building Code of Finland.
In addition to the Environmental Protection Act and Land Use and Building Act,
legal provisions on noise abatement can be found in the texts of several other Fin-
nish acts, such as the Health Protection Act (763/1994), the Neighbour Relations Act
(26/1920), the Act on Environmental Impact Assessment Procedure (468/1994), the
Highways Act (503/2005), the Act on Off-road Transport (1710/1995), the Act on
Water Transport (493/1996) and the Aviation Act (1242/2005).
There are provisions on the use of vehicles and vehicle regulations in the Road
Traffic Act (267/1981), the Vehicles Act (1090/2002) and the Decree of the Ministry
of Transport and Communications on the Construction and Equipment of Motor
Vehicles and Trailers (1248/2002). The Decree of the Ministry of Transport and Com-
munications on the Construction and Equipment of Tractors, Power-driven Work
Machines and Off-road Vehicles, their Trailers and Hitchable Equipment (1251/2002)
gives provisions on noise emissions for these vehicles and pieces of equipment. The
Decree of the Ministry of Transport and Communications on the Construction and
Equipment of Two- and Three-wheeled Motor Vehicles and Four Wheelers gives
provisions on noise emissions for motorcycles and mopeds.
The Government Decree on Noise Emission Levels for Equipment for Outdoor
Use (621/2001) sets limits for noise emissions in the environment resulting from
equipment used outdoors.
The Act on the Safety and Emission Requirements of Recreational Craft (621/2005)
and the Government Decree on the Safety and Noise Emissions of Recreational Craft
and Personal Watercraft and Noise and Exhaust Emissions for Recreational Craft and
Personal Watercraft Engines (748/2005), based on the Act, give provisions on noise
emission requirements for these craft and pieces of equipment.
Noise abatement in the European Union
and in certain Member States
The European Commission Green Paper on Future Noise Policy (COM(96) 540),
noted that implemented noise policy had not gone far enough. Accordingly, it was
proposed in the Paper that the Community should first draft a proposal for a directive
on harmonising methods for assessing noise exposure and on the mutual exchange
of information. A second stage would be to consider the setting of target values and
adopting obligatory actions.
Subsequent to the recommendations in the Green Paper, Directive 2002/49/EC of
the European Parliament and of the Council relating to the assessment and manage-
ment of environmental noise (Environmental Noise Directive) was adopted. Its aim is
to define a common approach for the European Community in order to avoid, prevent
or reduce the harmful effects due to exposure to environmental noise.
Directive (2001/43/EC) relating to tyres for motor vehicles and their trailers and
to their fitting is intended to reduce road traffic noise, while Directive 2001/16/EC
gave the initial maximum noise emission values for new rolling stock. The noise
emission requirements for aircraft are based on the regulations of the International
Civil Aviation Organisation (ICAO). The European Union has also issued Directive
2002/30/EC on the establishment of rules and procedures with regard to the intro-
duction of noise-related operating restrictions at Community airports. The updated
Recreational Craft Directive 2003/44/EC is intended to lessen noise emissions from
recreational craft and personal watercraft.
14 Reports of the Ministry of the Environment 7 en| 2007The Directive on the approximation of the laws of the Member States relating to the
noise emission in the environment by equipment for use outdoors (2000/14/EC) also
represents the endeavour to lessen environmental noise.
Guideline and limit values laid down in legislation on noise levels vary consid-
erably from country to country. There are differences in indicators, definitions for
noise zones and the binding nature of guideline values and their scope of application.
In only a few countries are the guideline values set for noise levels more stringent
than in Finland, and in such cases they apply to single industries or noise zones.
The guideline values for industrial noise in certain countries are 5–10 dB less than
in Finland. In addition, some countries apply stricter guideline values for outdoor
noise levels in areas that cater for educational and care institutions than in Finland.
In some countries, like Sweden, Denmark and the Netherlands, guideline values
have been set not only for average noise levels but also for maximum noise levels.
Guideline values based on two different indicators reflect the adverse effects of noise
more comprehensively than those merely based on average noise levels.
Reports of the Ministry of the Environment 7 en | 2007 15Aims and main proposals of the
resolution
Noise abatement objectives, targets and methods
Noise is one of the most common harmful environmental factors that impact on
human health and well-being. The main objective of noise abatement is a healthy,
pleasant and low-noise living environment.
To lessen the harm and disruption caused by noise it is necessary to pre-empt the
causes of noise, prevent its spread, locate noisy activities in suitable areas, protect
sites that are exposed to noise, and preserve different types of quiet areas.
The other most important types of noise abatement action relate to the planning
and implementation of land use and transport, housing construction, renovation
and maintenance, and the design, procurement and use of vehicles, equipment and
engines.
Action under the Government’s resolution and the national noise abatement action
programme are attempts to reduce the harmful effects of exposure to noise in Finland
as cost-effectively as possible.
The aim of the Government’s resolution is a reduction in noise emissions and the
prevention of the spread of noise resulting in fewer people being exposed to noise
than is the case now. By 2020 the number of people living in noisy areas where aver-
age daytime noise emissions exceed 55 dB (LAeq 7-22) should be at least 20% less
than in 2003.
In those cases in particular where the targets for outdoor noise are not being
achieved, efforts need to be made to ensure that indoor environmental noise does
not exceed the Government’s guideline values for noise levels by day or at night
(993/1992). More attention needs to be paid to night-time noise on account of its
adverse effect on sleep.
By 2020 the Government’s guideline values for noise levels must be met in present
residential areas, in the vicinity of educational and care institutions, and in play-
grounds. Daytime noise levels must not exceed 55 dB. At night the value is 50 dB
(LAeq 22-7). If this is not possible in all existing residential areas, noise abatement
measures will be taken to restrict maximum daytime and night-time noise levels to
60 dB and 55 dB, respectively. If noise levels rise above 60 dB the harmful effects will
increase very noticeably. The idea is for noise abatement action to be targeted initially
at residential areas where the average daily noise levels exceed 65 dB.
According to studies, around 2–15% of residents have their lives disrupted signifi-
cantly by noise, where the average noise level is 55 dB. Accordingly, noise abatement
will also initially focus on those areas where average noise levels exceed 55 dB and
where a good number of people are exposed. Noise abatement will be most cost-
effective in these areas.
Hitherto, noise abatement has been planned with the emphasis on residential areas.
But for those in different types of care institution, such as hospitals, rehabilitation
16 Reports of the Ministry of the Environment 7 en| 2007centres, or care homes for the elderly, being able to rest and sleep is particularly
important. Planners of community projects should ensure that average noise levels
in the vicinity of care institutions do not rise above 55 dB during the day or 45 dB
at night. The guideline night-time value for care institutions in other than newly
developed areas is 50 dB. If these values are not attained, repairs to the facades of
buildings should be planned in such a way that internal noise levels do not rise above
the guideline values.
As noise has an adverse effect on learning results, educational institutions should
be planned for areas where noise levels do not get disruptively high. Noise abatement
is of special importance in the construction and repair of schools and other educa-
tional establishments located next to busy traffic routes.
The preservation of quiet areas is also an aim of noise abatement, to promote, for
example, tourism and recreation in natural areas. What is needed in the vicinity of
residential areas are other areas where outside activities and recreation are possible
in reasonably quiet surroundings. Attention needs to be paid in future to noise levels
in such recreational areas.
Reports on noise and noise abatement plans
Under the Environmental Protection Act, the local authorities within their territories
must see to the necessary monitoring of the state of the local environment. In many
municipalities in the 1990s noise abatement programmes were drawn up, but their
implementation has been slow and they are now partly out of date. Municipal noise
abatement plans have to be kept up-to-date in collaboration with those responsible
for activities generating noise.
The Finnish Road Administration and Finnish Rail Administration have also
drafted noise abatement programmes, the most comprehensive of which apply to
the Helsinki area. However, the problem in the Road Administration at least is that
planned abatement action has not been able to go ahead due to a lack of money, and
also that the growth in the volume of traffic has made the plans partially obsolete. The
Road Administration, the Rail Administration and the local authorities are responsible
for eliminating the adverse effects of noise and for deciding on noise abatement mea-
sures (noise barriers, low-noise road surfaces, better sound transmission loss, traffic
restrictions, rail grinding, etc.) which lessen exposure to noise.
Under the Environmental Noise Directive, investigations are conducted on noise
levels in large cities and busy traffic routes and these serve as a basis for noise abate-
ment action plans to prevent or reduce noise. Obligations regarding such investi-
gations and action plans in Finland are contained in the new Sections 25a and 25b
of the Environmental Protection Act (459/2004) and provided for in greater detail in
the Government Decree on Noise Mapping and Action Plans for Noise Abatement
Required by the EC (801/2004). Noise mapping surveys and noise abatement action
plans are to be drawn up for municipalities with more than 100,000 inhabitants, for
main traffic routes and for large airports by the year 2012. The City of Helsinki and
the Finnish traffic authorities will conduct the first noise surveys under the Decree
in 2007.
In order to evaluate and improve noise abatement work it is important to know the
situation with regard to noise, its trends and the effects of action taken. Information on
sources of noise, noise levels and exposure are needed locally for environmental pro-
tection and for planning the use of land. Such information is needed by the different
authorities, be they those responsible for environmental protection, health, land
use, or traffic. Such information is also needed by the public. There is a need to de-
velop a database where information can be collected systematically on noisy areas,
Reports of the Ministry of the Environment 7 en | 2007 17noise levels, noise mapping, environmental noise problems, and noise exposure from
different noise sources. The first phase of the information system will probably be
implemented in 2007 in connection with the surveys referred to in the Environmental
Noise Directive. The system will later be extended to cover the whole country.
More information is needed on noise generated by the defence forces, so that they
can reduce the environmental noise levels caused by their operations. The defence
forces are examining noisy areas in shooting ranges and shooting and training areas
and the best available techniques for lessening noise caused there. Furthermore, a
working group set up by the Ministry of the Environment in 2005 and consisting of
defence and environmental administrative units is looking into noise from shooting
and ways to reduce its harmful effects.
Land use and traffic planning
In recent years there has been greater focus on noise abatement in the planning of
land use. Nevertheless, there is still pressure to build new housing and locate other
noise-sensitive activities in noisy areas.
The top priority in the prevention of the harmful effects of noise is finding solutions
during the planning of land use and transport. An important framework for this is
the national land use guidelines adopted by the Government on 30 November 2000,
according to which a more coherent community structure, preventing the harmful
effects of noise, and attempting to reduce existing disturbance and disruption must
be taken into account in land use planning.
Already in the planning stage, sufficient distance between activities that cause noise
and those which are sensitive to noise must be determined. If that is impossible, noise
abatement needs to be dealt with in other ways. New residential areas or noise-sensi-
tive activities should not be located in noisy areas without first ensuring that adequate
noise abatement measures have been taken. Neither should new activities that cause
noise be located in areas where they would increase exposure to noise.
Traffic is by far the most common source of noise. Noise levels can be cut most
effectively by reducing the noise emissions of vehicles and the need for transport.
This resolution cannot have an impact, for example, on modal split (i.e. percentage
of travellers using a particular type of transportation), but decisions on that should
include reduced noise emissions as one of the aims. Getting traffic off residential
streets and away from educational and care institutions may also lessen the adverse
effects of noise. Traffic noise levels can also be reduced by traffic calming and by
applying various traffic restrictions. Reducing speed limits is also an effective way
to control noise.
In planning the use of land it is important that one is able to guarantee the preserva-
tion of quiet areas. Built-up areas need relatively tranquil recreation areas which are
accessible on a daily basis. At the regional planning level the preservation of large qui-
et areas suitable for tourism and as nature protection areas should be safeguarded.
The Regional Councils are presently investigating quiet areas suitable, for instance,
for recreational purposes and tourism. No activities would be located close to such
areas which produced noise that had any significant impact greater than what would
pass for background noise. There is a need to develop different types of criteria, indi-
cators and guideline values for quiet areas. Moreover, to safeguard their existence
there needs to be emphasis on developing the necessary plan symbols and regulations.
Noise abatement planning needs to ensure that the measures do not result in other
environmental problems. In addition to lessening the adverse impact of noise, there
can be improvements to traffic safety and reductions in exhaust emissions.
18 Reports of the Ministry of the Environment 7 en| 2007Reducing noise emissions
Regulations on noise emissions from vehicles, power-driven work machines and
equipment for use outdoors are the business of the EU single market. There should
be more monitoring of these noise emissions.
In traffic noise abatement, low-noise road surfaces and tyres, likewise smooth rails
and wheels on railway carriages, help reduce rolling noise.
Low noise could be one factor in choosing which new vehicles, work machines
and other equipment to buy. This is a way to make quieter vehicles and equipment
a more common occurrence.
Industrial noise is a problem which has attracted a lot of attention in recent years,
especially with regard to decisions on environmental permits. When an industry
renews its production technology it needs to examine the noise emissions from in-
dividual machines and the entire plant. Changes need to be planned to use the best
available techniques based on the best environmental practices.
Noise levels at concerts have gone down in recent years with education and moni-
toring. Problems still persist, however, so there needs to be information in the future
on disturbance and disruption from noise from concerts, festivals and other outdoor
events.
Housing construction and renovation
In areas where noise levels outside exceed the Government’s guideline values, those
involved in construction work and repairs to the facades of houses and buildings
should ensure that the noise that carries indoors from outside does not exceed the
interior guideline values. Getting noise exposure to a reasonable level at night so that
it does not disturb sleep is vital for health. More attention needs to be paid to noise
levels indoors when granting planning permission and permits for action.
Soundproofing on the roofs and facades of Finnish buildings is, for energy
reasons, of a better standard than in central and southern Europe.
Noise abatement and energy-saving targets are often achieved using the same means.
Exterior cladding with good soundproofing, the use of balcony glazing and locating
bedrooms in quieter parts of a house help achieve comfortable and healthy indoor
living conditions in areas where outdoor environmental noise levels in the immediate
surroundings and in other nearby outside areas may cause adverse impacts.
In their report for 2005, the Finnish Parliamentary State Auditors considered impor-
tant the need for soundproofing in properties and methods to carry this out, as well
as an examination of the financing options, especially in the reduction of disturbance
from traffic in central city areas (Parliamentary State Auditors report K/16/2005).
Under the resolution the use of various forms of financial assistance to promote noise
abatement should be looked into, especially assistance such as interest subsidy loans
for renovations to housing companies’ properties and rented property.
Noise abatement guidance, research and training
A key priority for the prevention of disturbance from noise is the guideline values
to be applied in planning and decisions given on permits. There are, nevertheless,
practical problems involved in applying these values. In land use planning, new
routing projects and in the location of industry and other activities that cause noi-
se, an average daytime noise level of under 55 dB is aimed at for residential areas.
Reports of the Ministry of the Environment 7 en | 2007 19The extent to which care and educational institutions are taken into account in plans
varies, however. No comprehensive data exist on the implementation of the guideline
values of 45 dB (daytime) and 40 dB (night-time) for areas where there are holiday
homes or campsites, for recreational areas outside built-up areas, or for nature pro-
tection areas. The average noise level does not, in all cases, sufficiently reflect the
extent of disturbance from noise; instead, noise also needs to be examined using
other indicators. Guideline values also need to be supplemented for the areas around
motor-racing circuits.
A Finnish study on environmental noise is very rudimentary – the research groups
were small and international cooperation was fairly minimal. New information on noise,
its effects and preventive action is continuously needed for practical measures to be
developed and evaluated. The Ministry of the Environment is preparing a strategy for
research into noise abatement to promote studies in the field and raise research standards.
In addition, it has to be ensured that the public, the authorities and the different operators
have sufficient information on noise, its prevention, its spread and its effects available to
them. Better awareness of noise and its impact will also serve to increase the acceptability
of noise abatement measures.
More effective noise abatement will require greater skills and competence in the field.
Noise abatement criteria should be included in all examinations for professionals in jobs
requiring expertise in the field of noise abatement. Supplementary training courses on noise
are needed for planning and construction professionals and environmental specialists.
Implementation and monitoring of the resolution
The Road Administration, Rail Administration and many local authorities have
drafted noise abatement programmes to reduce or eliminate the harmful effects of
noise. There has either been no money for the implementation of the programmes,
however, or any abatement measures that have been taken have been inadequate
considering how great the need is. If the number of people exposed to noise is to be
reduced in the way suggested in the resolution there will need to be active involve-
ment and more resources.
The aims in the resolution should be taken into account and the measures carried out
in each branch of administration according to spheres of responsibility. Noise abatement
action on the part of the state authorities could also be incorporated in traffic safety, emis-
sion reductions or other environmental protection measures.
The main authorities, institutions, and organisations with an interest in noise abatement,
along with the Parliamentary State Auditors, believe it is essential that financing for the
noise abatement action programme drawn up in spring 2004 can be agreed on as soon as
possible. To secure the necessary additional funding, new financing arrangements and ap-
proaches should also be considered; for example, noise abatement theme packages. Theme
packages could be established with money from the Government’s framework appropriations.
The Ministry of the Environment will be monitoring the implementation of the resolu-
tion on noise abatement. To monitor the implementation of practical measures it will refer
to a working group report entitled ‘National Guidelines and Action Plan for Noise Abate-
ment’, which has 2020 as its target date. An interim assessment of the implementation of
the resolution will be produced in 2011.
20 Reports of the Ministry of the Environment 7 en| 2007Impact of the resolution
Economic impact
Awareness of the economic and social impacts of noise, or in terms of the local authori-
ties’ finances, is minimal. Disturbance and disruption due to noise causes individuals
and society to incur significant costs either directly or indirectly. This takes the form
of direct or indirect financial losses. Losses to the Finnish economy cover such areas
as increased medical and other health-care costs, greater absenteeism from work,
reduced productivity and a decline in property values. In addition, noise abatement
incurs direct costs, such as from the construction of individual barriers or from im-
provements to the soundproofing of external cladding on buildings.
The European Commission in its Green Paper on Future Noise Policy states that
the costs of the harm caused to society from noise represents 0.2–2% of GDP. If just
the lower percentage figure (0.2%) were applied to Finland, it would mean that noise
would result in costs of €300 million every year.
According to an assessment made in 2004, Finland spends €5 million a year on
separate noise abatement projects. The costs of noise abatement solutions in traffic
and construction projects and in the refurbishment or modernisation of industrial
plants are not, however, included in this figure.
The cost of building noise barriers in Finland during the period 2005–2020 is esti-
mated at around €150 million against road traffic, €242 million against street traffic,
and €23 million against rail traffic, making a total of €415 million.
In a survey commissioned by the Ministry of the Environment entitled ‘The Be-
nefits and Costs of National Policies on Noise Abatement’ (Finnish Environment
821/2006) an assessment was made of the financial cost of disturbance from noise
caused by road, rail and street traffic at the time of the start of the action programme
drafted in 2004. The estimate for overall disturbance and disruption from exposure
to noise from the major sources of noise in 2005 is €46–62 million a year, depending
on how it is assessed. If the harm from other less significant sources of noise is taken
into account, the figure in Finland is around €50–65 million a year. The overall value
of the harm caused must be seen as underrating the situation, however, because the
adverse effects on health and well-being are not considered in the survey.
The survey shows that if exposure to noise were reduced in the areas of road, rail
and street traffic, it would result in a savings of €67–98 million at current values.
The estimate is based on the fact that the benefits of a noise abatement programme
implemented steadily for the period 2005–2020 would be taken into account up to
the year 2034. If the national action programme achieves its targets by 2020, as is the
plan, the estimated costs of disruption from noise annually will be approximately
6% less than those presented above. If noise disruption from less significant sources
of noise were also reduced, the benefits of the national action programme would be
a little greater.
Reports of the Ministry of the Environment 7 en | 2007 21The findings show that the greatest benefits from noise abatement are obtained from
changes to exposure in low noise-level zones, because that is where most people live.
The population density of a noise zone has a significant impact on the overall benefits
achievable. On the other hand, if the national action programme were to be imple-
mented exclusively by building noise barriers, the noise abatement project would
not be worth it in socio-economic terms, according to an assessment just conducted.
Noise abatement must therefore embrace not only unavoidable noise barriers but also
alternative preventive solutions. Furthermore, the sequence in which the measures
are implemented should be thought through carefully.
Large-scale renovation work in which the sound transmission loss of residential
properties mainly in the centres of large cities but also possibly of individual proper-
ties in sparsely populated areas is improved, would cost roughly €100–150 million.
The costs of noise abatement in accordance with the aims of the Environmental Pro-
tection Act are to be paid for by the operators. Improved sound transmission loss in
buildings is a way to deal with noise abatement that hitherto the owner of the property
basically has had to pay for.
The costs of noise abatement in the existing urban structure are included in the
budgets of the local authorities, the traffic authorities and industry. It has not been
possible so far, however, to allocate enough money in budgets and project frameworks
for the noise abatement programmes that have been drawn up.
Whilst preventive measures need to be targeted at more cost-effective methods
than those employed at present, optional measures should be mapped out, and those
who cause the noise should bear the main liability for the costs.
Environmental impact
Health and well-being
Noise has an adverse effect on people in many ways. It can have direct physiological
effects, and affect a person’s ability to communicate and sleep. Noise is felt to be
disruptive. It can cause hearing difficulties of different degrees and hamper spoken
communications by impairing a person’s ability to distinguish speech. The level and
nature of noise can also lead to negative feelings or affect thinking and perception,
for example, awareness, learning, memory and problem-solving ability. Noise may
also have other physical and cognitive effects. It can cause stress or various problems
in functioning properly. In addition to its effect on health, noise impairs the quality
and comfort of the living environment in many ways. Although sensitivity to noise
varies with the individual, the adverse effects of noise on the population in general
have been proven beyond doubt.
Crucial to noise abatement work are the levels of noise that are acceptable in the
everyday living environment without causing any significant harm or disturbance.
Guidelines on noise levels are generally meant to represent the criteria for acceptable
noise levels in the everyday living environment. However, they are not in themselves
a guarantee of a qualitatively good noise environment, and the goal should be noise
levels lower than the guideline values.
If the aims of the resolution are adhered to, the total number of people exposed
to noise will fall as will the number of those exposed to the highest levels of noise.
The number of people exposed to noise, however, is expected to grow further in and
around areas with traffic where no special noise abatement action is taken.
22 Reports of the Ministry of the Environment 7 en| 2007As property refurbishments are systematically extended to cover sound transmission
loss, night-time noise in the noisiest areas will cause less harm and disruption than
before. Although noise levels outdoors might exceed the guideline values, those
indoors will generally remain at a reasonable level.
Urban form, the landscape and the city image
If a denser urban structure reduces the need for transport, noise, too, will diminish.
However, noise may restrict land use planning and various activities cannot be freely
located close to traffic corridors or production plants.
The visual environment is also affected by noise barriers and improved sound
transmission loss in buildings. Noise barriers restrict views and can either impoverish
or improve the aesthetic quality of the environment. As offices and warehouses spring
up by the side of roads, the solidity of their facades acting as noise barriers changes
the image of the street. Noise barriers or embankments might be seen in a negative
light when they restrict views, and sometimes they lack visual appeal. On the other
hand, at its best the construction of noise barriers with trees and shrubs gives the en-
vironment structure and makes it more appealing. Noise barriers can also physically
divide areas into different sections. In improvements made to the sound transmission
loss of buildings it has to be ensured that new windows and materials used on facades
do not impoverish a building in terms of its cultural and historical value.
Other effects on the environment
In some cases the noise abatement of equipment may give rise to a need for addition-
al power. Additional insulation in vehicles and work machines may increase their
weight, which in turn increases fuel consumption. Low-noise road surfacing used on
a large scale will increase particle emissions unless a solution is found to this problem
through product development.
The consumption of materials for noise barriers is at a reasonable level. The
construction of noise embankments balances out the materials used in projects if the
surplus volumes of excavated material can be used to build the noise embankments
themselves. Noise barriers may also be made from recycled materials.
Noise abatement has no fundamental effects on water, soil or any other aspect of the
natural environment. The preservation of quiet areas may promote the reproduction
of sensitive animal species.
Reports of the Ministry of the Environment 7 en | 2007 23Preparing the case
The proposals for national policies and an action programme on noise abatement of the
working group representing the main authorities and agencies interested in the subject
are aimed at jointly agreed action to improve noise levels in Finland. The proposals
and the reasons given for them serve as a basis for the aims set out in this resolution.
In order to draft the resolution, the Ministry of the Environment organised
a number of hearings during the period May–June 2005 with the main authorities,
such as the Ministry of Transport and Communications, the Ministry of Social
Affairs and Health, and officials from the Road Administration.
In February 2006 the Ministry of the Environment asked 72 different bodies rep-
resenting key noise abatement authorities, institutions and organisations for an opin-
ion on the Government’s draft resolution. Almost all those that submitted opinions
thought it was worthwhile and necessary. Most also said that the draft resolution sets
out clear aims for noise abatement work and proposes feasible ways to limit environ-
mental noise. Some thought, however, that the aims would be very challenging should
the necessary support and resources not be earmarked for noise abatement work.
The Government’s draft resolution was dealt with by the Advisory Board on
Municipal Economy and Administration on 25 April 2006.
24 Reports of the Ministry of the Environment 7 en| 2007You can also read
