Technology-forcing to reduce environmental noise pollution: a prospectus

BACKGROUND

Environmental movements of the late 20th century resulted in sweeping legislation and regulatory actions to reduce the prevalence of diverse pollutants. Although the consequences of noise pollution to public health, environment, and the economy have been recognized over the same time period, noise has received far less policy attention. Correspondingly, even while evidence of the diverse and detrimental effects of noise pollution on human health has grown, solutions and actual reductions in environmental noise remain seemingly out of reach.

OBJECTIVE

To address this shortcoming, we developed a prospectus for environmental noise reduction through technology-forcing policies. Technology-forcing describes intent to encourage technological solutions for pollution control through policy and regulations, and has been a critical component of national and global progress in reducing environmental pollutants.

METHODS

We take advantage of the unique policy history for noise in the United States - which initially enacted, but then abandoned federal noise regulation. We compare this history against outcomes from contemporaneous environmental legislation for air, water, and occupational pollution control, to demonstrate the potential for technology-forcing to reduce noise pollution. Our review then identifies promising solutions, in the form of existing technologies suitable for innovation and diffusion through technology-forcing regulations and incentives.

RESULTS

Based on this review, we outline a program for noise policy development to support efforts to reduce environmental noise pollution worldwide. The proposed program consists of three steps, which are to (i) identify dominant sources of noise pollution, (ii) combine legislative or regulatory provisions with suitable systems of enforcement and incentives, and (iii) anticipate and prepare for stages of technological change.

IMPACT STATEMENT

Analysis of noise policy often focuses on justifying the need to reduce noise pollution. In this article, we demonstrate how technology-forcing regulations could also promote much-needed innovation and diffusion of technologies to reduce environmental noise pollution. We first establish the potential for technology-forcing by comparing technology outcomes from environmental legislation passed contemporaneously to the inactive US Noise Control Act. We next review promising innovations available for diffusion in multiple sectors to reduce environmental noise. Lastly, we recommend a program to support development of technology-forcing noise policies, to help ensure that the benefits of reduced noise pollution are distributed equitably.

Above and below: Military Aircraft Noise in Air and under Water at Whidbey Island, Washington

Military operations may result in noise impacts on surrounding communities and wildlife. A recent transition to more powerful military aircraft and a national consolidation of training operations to Whidbey Island, WA, USA, provided a unique opportunity to measure and assess both in-air and underwater noise associated with military aircraft. In-air noise levels (110 ± 4 dB re 20 µPa rms and 107 ± 5 dBA) exceeded known thresholds of behavioral and physiological impacts for humans, as well as terrestrial birds and mammals. Importantly, we demonstrate that the number and cumulative duration of daily overflights exceed those in a majority of studies that have evaluated impacts of noise from military aircraft worldwide. Using a hydrophone deployed near one runway, we also detected sound signatures of aircraft at a depth of 30 m below the sea surface, with noise levels (134 ± 3 dB re 1 µPa rms) exceeding thresholds known to trigger behavioral changes in fish, seabirds, and marine mammals, including Endangered Southern Resident killer whales. Our study highlights challenges and problems in evaluating the implications of increased noise pollution from military operations, and knowledge gaps that should be prioritized with respect to understanding impacts on people and sensitive wildlife.