City Noise Task Force Report

3. Introduction

Noise is the "silent" environmental issue of the 1990s.

The Urban Noise Task Force was formed to address growing concerns regarding the apparent increase in adverse effects of noise on everyday life in Vancouver. The original "Soundscape Task Force" met 25 years ago to discuss similar issues and the result of their work was the formulation of the early noise by-laws for the City. The present Task Force reviewed the issue of urban noise with a view to assessing how noise in the city has changed and to updating approaches for preserving the soundscape as it relates to the quality of life of Vancouver citizens. There is concern that in some of Vancouver's residential areas, urban noise has reached the point where windows must be kept closed day and night to allow for sleep or for a telephone conversation. In many outdoor areas otherwise attractive to tourists and residents, relaxed conversations are nearly impossible. On busy streets, noise from trucks and buses can be so loud that extended exposure could produce damage to a person's hearing.

Repeated and lengthy exposure to high-level noise is well-recognized as a public health hazard, depriving people of sleep, increasing their stress and interrupting routine tasks.

In Europe, urban noise is recognized as a pressing environmental problem. Nations cooperate with each other in vigorous noise abatement programs. Here in North America, most communities have noise control ordinances, but administrative complexity and -- until recently -- public indifference have resulted in few efforts to address noise in a systematic and strategic fashion.

Terms of Reference for the Task Force, consisting of seven tasks, were approved by City Council on January 9, 1996 (Appendix A).

Current status

The first task in the Terms of Reference was to identify the current status of the soundscape. A direct comparison of noise levels between the time of the last comprehensive survey initiated by the GVRD in the early 1970s and today is not available. There is reason to believe, however, that the growth of noise in Vancouver has followed the trend seen in most major cities, with an approximate doubling of the intensity every six years.

The largest increase is due to the growth of automobile, bus, truck and motorcycle traffic. With the growth in population and the increase in hospitality and entertainment industries in the Downtown core, other sources have also become more intrusive. Examples are construction machinery noise, air conditioning equipment, buskers, entertainment centres and night clubs.

Of growing concern is the unrestrained use and intrusive sound characteristics of leaf blowers and the increasing frequency of aircraft movements at the waterfront and over the city, as well as that latest threat, the jet ski.

In a telephone survey of 1,000 citizens conducted for the Task Force in the early fall of 1996, the majority of city-wide respondents felt that Vancouver was noisier today; not surprisingly, even more of those living in the West End and Downtown felt this way (Figure 3 and Figure 4). City-wide, about one quarter of the sample (Figure 5 and Figure 6) said that noise was a frequent problem and about one third said it was occasionally a problem. Again, not surprisingly, those living in the West End and Downtown areas reported noise to be a greater problem than it was reported to be by the City-wide sample. Overall, most citizens are bothered by noise, at least some of the time.

Figure 5: Extent to which noise is a problem - City-wide responses

Figure 6: Extent to which noise is a problem - West End/Downtown responses

When asked to name the three most common types of noise that were problems, those surveyed most often identified traffic and vehicular noise (Figure 1). Other frequently mentioned noise problems were: sirens, parties, music, construction, aircraft, alarms, dumpsters, and special events. Of the 200 or so pieces of correspondence that were sent to the Task Force, about 30 per cent of the letters featured complaints about house and garden maintenance noise (Figure 2). Another 20 per cent complained about various types of vehicles, ranging from motor cycles to jet skis. Another nine per cent of the letter writers complained about general traffic noise, not associated with specific types of vehicles. Other topics of concern were car alarms, sirens, special events, construction, aircraft, and neighbour noise such as barking dogs and noisy parties.

Public expectations

The second task in the Terms of Reference was to identify public expectations. Surveys typically show a low level of public awareness on noise issues, little knowledge about its risks and negative effects, and, unless individuals are extremely annoyed by a particular noise source, little motivation to change the situation. In Vancouver, few citizens have been aware either that there is a relatively comprehensive set of noise control by-laws or that there are places where citizens might turn to address noise problems.

With lively concerns about the quality of life, a more direct involvement in environmental issues is replacing the passive attitudes of the past. Vancouverites take pride in the natural beauty of the city and regard it as a good place to live. With a better understanding of the links between the quality of the soundscape and the city's livability, public demands for remedial measures and strong leadership at the various levels of government are growing.

Impact on public health

The third task in the Terms of Reference was to inventory noise issues. While hard evidence that property values are depressed by noise is lacking, real estate surveys have shown that the "turnover" of properties in noisy areas is more frequent. The features that make Vancouver so attractive, such as Downtown parks, beaches and waterfront, exacerbate noise problems by confining the traffic flow to arteries in residential areas.

"Eight months ago, I appointed a commission to study city noise and map out the means of abating it. This is a report of its work. "For the first time, men skilled in the many fields that touch upon the noise problem have worked together in an effort to understand it in its wide-reaching ramifications and to find ways of diminishing the clamor of our city. "The report is now published in clear, popular form so that all may read and understand how to do their part in eliminating noise -- that annoying by-product of our machine-using age. "The Noise Abatement Commission now shares with six million dwellers in New York City the pioneering task of removing unnecessary noise from city life and, to that end, shares also its knowledge of conditions and its suggestions for remedies." Dr. Shirley Wynne, Commissioner of Health, City of New York in the foreword to "City Noise," 1930

In the Downtown core of Vancouver, there is a large and growing population of tourists, visitors and retired residents who enjoy shopping, walking and dining in outdoor cafes. When noise levels prevent ordinary conversation, as has become the case in many areas, these pleasures are denied and the impact upon residents and small businesses dependent upon tourists is serious.

Few cities have in their midst an asset comparable with Stanley Park. This sanctuary is under continuous attack from the noise produced by causeway traffic, tour buses and low-flying aircraft.

People are increasingly aware of warnings from the medical profession on the effects of repeated and lengthy exposures to high levels of sound. Evidence that prolonged exposure to a high intensity noise source will produce hearing impairment, nervous tension, sleeplessness, psychiatric disorders and inefficiencies in the workplace can no longer be denied. The growing population of school children with noise-induced hearing losses is of particular concern.

Even moderate and low levels of noise can disturb sleep patterns, interfere with conversation, study and leisure activities, or cause annoyance.

Instruments currently in use

The fourth task in the Terms of Reference was to inventory and evaluate current instruments for addressing noise. Under the Vancouver City Charter, the City can deem certain types of noises to be objectionable. "Boom box" automobiles are an example. Such noises are susceptible to enforcement sanctions in and of themselves and do not require the complaint of a "victim." The difficulty in applying this type of control is in the requirement for a very specific, carefully crafted by-law.

The City may take action against a second class of noises -- barking dogs, for example, or construction noises where the sounds are considered harmful. In this class, "victims" must file a complaint and be prepared to testify in court -- requirements which deter most would-be complainants.

For noises in general, the City has a comprehensive set of noise by-laws which stipulate maximum noise levels, measured in decibels, that are acceptable in various city zones, or between certain hours of the day or night, and also with regard to the type of source.

With regard to the by-laws there are many problems with enforcement; for example, the noise from a particular source may be masked by the ambient background. Quality, rather than intensity, (e.g., intermittent barking) may be the cause of discomfort.

The problems are compounded by the limited jurisdiction of the City with, for example, the noise of vehicles, a responsibility of the province, or with regard to airplanes and boats, usually responsibilities of the federal government.

Last modified: April 30, 1997
(c) 1996 City of Vancouver