EVALUATION OF LOCAL CONDITIONS FOR NOISE ACTION

Transcription

EVALUATION OF LOCAL CONDITIONS
FOR NOISE ACTION PLANNING IN
PROVIDENCIA, CHILE
Rodrigo López
Stockholm, May 2010
TRITA-LWR Degree Project 10-09
ISSN 1651-064X
ISRN KTH/LWR/Degree Project 10-09
Evaluation of local conditions for Noise Action Planning in Providencia, Chile
© Rodrigo López 2010
Master of Science Thesis
Examiner: Associate Professor Jan Erik Gustafsson
Supervisor: Dr. Patricia Phumpiu
Department of Land and Water Resources Engineering
Royal Institute of Technology (KTH)
SE-100 44 STOCKHOLM, Sweden
Reference should be written as: López, R (2010) ―Evaluation of local conditions for Noise
Action Planning in Providencia, Chile‖ TRITA-LWR Degree Project 10-09
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Rodrigo López
TRITA LWR Degree Project 10-09
In Memoriam Clotilde López de Broschek
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A CKNOWLEDGEMENTS
I would like to thank to those persons who made this work possible:
To my supervisor Patricia Phumpiu, for her encouragement and professional
commitment even at long distances, always providing me with the most inspiring and
useful comments during the whole process.
To Roberto Quezada, for his invaluable help during data processing of noise maps at
CONAMA and all the constructive conversations we held there.
To Jaime Márquez, Roberto Díaz, Sergio Ruminot, Gerardo Fercovic and Pablo
Villatoro, for their selflessly cooperation during the personal interviews held at the
Municipality of Providencia.
To Ivan Cusini and Juan Diego Rueda, for the interesting comments and critical
observations they made on my manuscript.
To my family, especially my wife Carolina and her parents Roberto and Alejandra, for
their unconditional love and support.
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T ABLE OF C ONTENT
Acknowledgements ......................................................................................................................v
Table of Content ........................................................................................................................ vii
Abbreviations and symbols ........................................................................................................ ix
Sammandrag ............................................................................................................................... xi
Abstract ........................................................................................................................................ 1
1.
Introduction ....................................................................................................................... 1
1.1.
1.2.
1.3.
Research questions ...................................................................................................... 2
The link between noise and sustainability................................................................. 2
Environmental noise in theory.................................................................................... 3
1.3.1.
1.3.2.
1.3.3.
1.3.4.
1.4.
1.5.
Environmental noise in context .................................................................................. 7
Providencia, the commune ......................................................................................... 8
1.5.1.
1.5.2.
1.5.3.
1.5.4.
1.5.5.
1.6.
Agglomeration description ................................................................................................. 8
Demographic and Socio-economic data ........................................................................... 11
Transportation ................................................................................................................. 11
Land Use ......................................................................................................................... 12
Environmental noise situation in Providencia ................................................................... 12
Providencia, the municipality ................................................................................... 13
1.6.1.
1.6.2.
2.
Concepts and definitions .................................................................................................... 3
Measures and descriptors ................................................................................................... 3
Abatement measures and strategies .................................................................................... 5
Local Action Planning ........................................................................................................ 5
Organizational structure ................................................................................................... 13
Development targets of Providencia 2006-2012................................................................ 13
Methodology .................................................................................................................... 20
2.1.
2.2.
2.3.
2.4.
Review of legal framework ........................................................................................ 20
Collection of noise abatement measures and strategies ......................................... 20
Personal interviews .................................................................................................... 20
Elaboration of noise conflict maps ........................................................................... 21
2.4.1.
2.4.2.
2.4.3.
Step 1 ............................................................................................................................... 21
Step 2 ............................................................................................................................... 21
Step 3 ............................................................................................................................... 21
Hot spot identification .............................................................................................. 21
Site visit ...................................................................................................................... 21
Evaluation of noise abatement measures and long-term strategies ...................... 22
3.
Results .............................................................................................................................. 23
3.1. Review of national and local regulation on environmental noise........................... 23
2.5.
2.6.
2.7.
3.1.1.
3.1.2.
National regulation ........................................................................................................... 23
Local Noise Ordinances ................................................................................................... 24
Noise assessment criteria .......................................................................................... 25
Hot spot identification and analysis......................................................................... 26
Collected noise abatement measures and long-term strategies ............................. 27
SWOT analysis ........................................................................................................... 33
Discussion........................................................................................................................ 37
References ........................................................................................................................ 40
Other references .............................................................................................................. 43
3.2.
3.3.
3.4.
3.5.
4.
5.
6.
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A BBREVIATIONS AND SYMBOLS
CONAMA
EIR
HUD
INE
INN
Ldn
Ln
MINVU
MINSEGPRES
MTT
NNG
NU
PLADECO
QCITY
SECPLA
SECTRA
SESMA
SILENCE
SWOT
WHO
Chilean National Environment Commission (Comisión Nacional
del Medioambiente)
Environmental Impacts Ranges
U.S. Department of Housing and Urban Development
Chilean National Institute of Statistics (Instituto Nacional de
Estadísticas)
Chilean National Institute of Standards (Instituto Nacional de
Normalización)
Day-Night Average Sound Pressure Level
Nighttime Average Sound Pressure Level
Ministry of Housing and Planning (Ministerio de Vivienda y
Urbanismo)
Ministry General Secretariat of the Presidency (Ministerio
Secretaría General de la Presidencia)
Ministry of Transport and Telecommunications (Ministerio de
Transporte y Telecomunicaciones)
Night Noise Guideline
Neighborhood Unit (Unidad Vecinal)
Communal Development Plan (Plan de Desarrollo Comunal)
Quiet City Transport
Planning Secretariat (Secretaría de Planificación)
National Transport Secretariat (Subsecretaría de Transporte)
Metropolitan Health Service (Servicio de Salud Metropolitano del
Ambiente)
Quieter Surface Transport in Urban Areas
Strengths, Weaknesses, Opportunities and Threats
World Health Organization
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S AMMANDRAG
Omgivningsbuller är ett av de mest underskattade och samtidigt, komplexa problem
som förekommer i tätorter, orsakar allvarliga konsekvenser för människors hälsa
därmed utarmar vår levnadsstandard. Flera försök har gjorts för att kontrollera buller
genom innovativa reningsutrustning och långsiktiga strategier som genomförs i
europeiska städer som en del av handlingsplanerna inriktas på transitering buller, som
resultat och erfarenheter används i SILENCE och QCITY forskningsprojekt.
Syftet med denna studie är att utvärdera genomförandet är möjligt att vissa av dessa
åtgärder och strategier som en del av ett lokalt buller handlingsplan i kommunen
Providencia, i Chile. För detta, en SWOT-analys av varje bullerbekämpning åtgärd och
långsiktig strategi sker med hänsyn till lokala förhållanden i Providencia, buller
reglering på nationell och kommunal nivå, personliga intervjuer med kommunala
tjänstemän, och buller hot spot identifiering och besök på platsen.
Det konstaterades att nuvarande buller förordningen i Chile är bara fokuserat på
buller utan några kriterier för transitering bullerexponering, som är en relevant faktor
att sätta upp mål brusreducering. Å andra sidan är de flesta av effektiviteten av de
bedömda åtgärder och strategier för vilka olika faktorer som kostnad finansiering,
politisk vilja, samordning mellan myndigheter och människor beteende, den senare
starkt relaterade till allmänhetens medvetenhet och utbildning.
Nyckelord: omgivningsbuller, Bullerdämpande åtgärder, långsiktiga strategier,
handlingsplaner, hot spot-området.
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A BSTRACT
Environmental noise is one of the most underrated and, at the same time, complex
problems present in urban areas, causing serious consequences on human health thus
impoverishing our living standard. Several attempts have been done in order to
control environmental noise through innovative abatement measures and long-term
strategies implemented in European cities as part of action plans focused on transit
noise, which results and experiences are used in the SILENCE and QCITY research
projects.
The aim of this study is to evaluate the implementation feasibility of some of these
measures and strategies as part of a local noise action plan in the commune of
Providencia, in Chile. For this, a SWOT analysis of each noise abatement measure and
long-term strategy is undertaken considering the local conditions of Providencia, noise
regulation at the national and communal levels, personal interviews with municipal
officers, and noise hot spot identification and site visit.
It was found that existing noise regulation in Chile is only focused on noise emission
without any criteria for transit noise exposure, which is a relevant factor to set noise
reduction targets. On the other hand, most of the effectiveness of the assessed
measures and strategies is subject to different factors like cost funding, political will,
coordination between authorities and people behavior, being the latter strongly related
to public awareness and education.
Key words: Environmental noise; Noise abatement measures; Long-term
strategies; Action planning; Hot spot area.
1. I NTRODUCTION
It is already well known that noise, namely an unwanted sound, is part of
the undesired consequences of growth in cities, and for some just ‗a cost
of modernization‘. Even more and more people is moving from rural to
urban areas, therefore increasing the demand of goods and services
which are linked to noise sources from different activities like industry,
transportation, recreation or construction, being road traffic the most
important source of community noise (Pui-ying et al, 2002; Bodin et al,
2009).
Many studies have identified noise as a relevant environmental stressor
that affects our health and performance resulting in hearing impairment,
interference with speech communication, sleep disturbance,
cardiovascular risk, cognitive task performance and social behavior
(Evans & Cohen, 1987; Staples, 1997; Berglund et al, 2000; Babisch,
2006; Bies & Hansen, 2009; Bodin et al, 2009). As an effort to reduce
impacts of environmental noise on urban population, this study evaluates
the existing conditions and feasibility to implement noise abatement
measures and long-term strategies in the district of Providencia, Chile.
According to the World Health Organization (WHO) the problem of
noise pollution is critical in developing countries, with equivalent sound
pressure levels for 24 hours of 75 to 80 dBA (Berglund et al, 2000). In
Europe there are efforts centered on environmental noise control
through local action planning as a way to comply with the
Environmental Noise Directive, resulting in two already finished
research projects (SILENCE and QCITY) and several European cities
involved (Kloth et al, 2008; Greater London Authority, 2004).
In Chile, the idea of considering environmental noise as a decisionmaking variable and using management and urban planning tools for its
control has been already proposed (Quezada, 2002; Valdebenito, 2009;
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Suárez & Rodríguez, 2009), but still without practical consequences to
date. Several noise abatement measures and long-term strategies already
implemented in European cities as part of a Local Noise Action Plan are
evaluated in this study in order to check their feasibility for
implementation in Providencia by identifying strengths, weaknesses,
opportunities and threats (SWOT) based on the local conditions. For
this reason, it is relevant to understand the administrative and physical
context of Providencia and to analyze the limitations of the existing legal
framework regarding environmental noise at the national and local levels.
1.1. Research questions
The research contained in this study aims at address the following
questions:

What are the contributions and limitations the existing legal
framework offers to reduce environmental noise?

How a noise hot spot area can be identified in Providencia?

What kind of noise abatement measures and long-term
strategies the Local Noise Abatement Plan may include for the
Providencia case study?

How suitable are the local conditions of Providencia to
implement the reviewed noise abatement measures and longterm strategies?
1.2. The link between noise and sustainability
The concept of Sustainable Development, since the publication of the
Brundtland report from the UN World Commission on Environment
and Development in 1987, has become important for planners,
administrators and politicians (Næss, 2001). As stated in Our Common
Future (World Commission on Environment and Development, 1987),
‗sustainable development is a process of change in which the exploitation
of resources, the direction of investments, the orientation of
technological development, and institutional change are all in harmony
and enhance both current and future potential to meet human needs and
aspirations.‘
The need for a more holistic approach of development by considering
their social, economic and environmental aspects has been gradually
become a major topic during the last years in the political agenda of
developed countries. In much of the literature on sustainable urban
development and spatial planning in developed countries, one element
that is emphasized is to provide a sound environment for the city‘s
inhabitant, without pollution and noise damaging to the inhabitant‘s
health (Næss, 2001).
Noise control emerges as one of the sustainability factors that imply the
consideration of not only the social and environmental aspects regarding
health care, but also of the economic aspect associated to health and
property costs. The noise problem generates costs itself, like those
related to health (hear impairment, heart attacks, sleep disturbance, etc.)
and decreasing house prices due to noise exposure (Kloth et al, 2008).
Furthermore, surveys show that environmental noise is a crucial reason
for people moving out of cities into suburban areas (Kloth et al, 2008).
The problem of urban noise is a key aspect related to sustainability which
demands a holistic and strategic approach for avoiding unnecessary costs
and impoverishment of life quality at an early, planning state before it is
already too late. Moreover, local action planning for environmental noise
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control is clearly an opportunity for incorporating innovative and
efficient approaches, like traffic calming and sustainable urbanism, which
must be exploited on behalf of the community.
1.3. Environmental noise in theory
1.3.1. Concepts and definitions
There are some concepts that should be clearly understood before
moving into more technical areas of this theoretical background. These
concepts are relevant in the legal framework, especially in the elaboration
of noise regulations or action plans, and their proper statement avoids
possible misunderstandings between involved experts and decisionmakers.
The definitions provided in the available literature are quite similar, but
sometimes presenting different names for the same concept.
Nevertheless, it is now important to clarify that the scope of this study is
noise generated in urban areas from several sources, and not occupational
noise, which is noise generated in working places that clearly requires a
different strategy and approach. The concepts used in this study are
described as follows.
The term community noise is generally referred to the external noise
generated by one or several sources within inhabited areas, whereas
environmental noise correspond to the surrounding noise linked to certain
location in a community, composed by several noise sources (Bishop and
Schomer, 1997).
According to the Greater London Authority Act 1999, the term ambient
noise is mainly composed by noise from transport and fixed industrial
sources, and may be also referred to as environmental noise. On the other
hand, noise from household appliances, audio systems, noisy pets,
construction sites, parties, intruder alarms or similar may be usually
referred to as neighbourhood noise (Greater London Authority, 2004).
Conclusively, it is possible to consider at large scale both ambient noise and
environmental noise as the same concept for surrounding noise from
transport and industry—which is the one used in this study as most of
the evaluated measures are strongly related to transit noise—, whereas at
the more local scale both community noise and neighbourhood noise may be
considered as noise from households and within inhabited areas.
1.3.2. Measures and descriptors
Noise is an unwanted sound, which consist in mechanical waves
traveling through a defined medium, like air. These sound, generated
from certain source, reach our ears after travelling a propagation path
Table 1. Some sound sources and their respective sound pressure levels (Adapted
from Bies & Hansen, 2009).
Sound Pressure Level, in
Description of sound source
dB
140
Artillery fire (gunner’s position)
120
Rock concert (in front and close to speakers)
Punch press and wood planers (at operator’s
100
position)
80
Next to busy highway, shouting
60
Department store, restaurant
40
Quiet residential neighborhood
20
Recording studio
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Typical subjective
description
Intolerable
Very noisy
Noisy
Quiet
Very quiet
and contains a lot of information regarding frequency (high, medium or
low), amplitude (volume, intensity) and temporal characteristics
(continuous, impulsive).
The human ear responds approximately logarithmically to energy input,
which is proportional to the square of the sound pressure. Therefore, a
logarithmic scale matches best to subjective response compared to linear
scale, considering also that a rather compressed scale should be used due
to the significant dynamic range of the ear. In order to avoid a scale that
is too compressed, a factor of 10 is introduced, giving rise to the
decibel. The level of sound pressure p is then said to be Lp decibels (dB)
greater than or less than a reference sound pressure pref, according to the
following equation (Bies & Hansen, 2009):
𝐿𝑝 = 10𝑙𝑜𝑔10
𝑝2
2
𝑝 𝑟𝑒𝑓
dB
(1)
In order to have an idea about the magnitude ranges of sound pressure
levels, an illustrative table showing the relationship between levels and its
subjective description is presented in Table 1.
Equivalent Continuous Sound Pressure Level (Leq)
This descriptor is a sound pressure level defined in terms of time L(t),
which is the time-averaged sound pressure squared converted to
decibels:
𝐿𝑒𝑞 = 10𝑙𝑜𝑔10
1 𝑇
10 𝐿(𝑡) 10
𝑇 0
𝑑𝑡
dB
(2)
where T is a long period of time and L(t) is the unweighted sound
pressure level at time t (Bies & Hansen, 2009).
The quantity LeqA, in dBA, is the equivalent continuous A-weighted noise
level, which characterizes fluctuating noise as an equivalent steady-state
level, and it is found by replacing the unweighted sound pressure level in
Equation 1 with the A-weighted sound pressure level.
Most sound level meters provide electronic weighting networks for
considering the behavior of the human ear, namely that its subjective
response varies with frequency and sound pressure. One of these
electronic weighting networks is the A-weighting circuit, which is
designed to approximate the response of the human ear at low sound
pressure levels, and as it may be typical of environmental noise this
circuit is very much used for noise measurements (Bies & Hansen, 2009).
Figure 1. The source-path-receiver framework. (Source:
Hanson et al, 2006)
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Day-Night Average Sound Level (Ldn)
The Day-Night Average Sound Level, Ldn, is used sometimes to quantify
traffic noise and some standards regarding the intrusion of traffic noise
into the community are written in terms of this quantity, defined as:
𝐿𝑑𝑛 =
1
10𝑙𝑜𝑔10 24
07:00
10 × 10𝐿𝐴 𝑡 10 𝑑𝑡
22:00
22:00
10𝐿𝐴 (𝑡) 10 𝑑𝑡
07:00
+
dB
(3)
where LA(t) is the A-weighted sound pressure level (Bies & Hansen,
2009).
Note that in (3) there is a nighttime penalty of 10 in the first term of the
parenthesis (Ln) based on the fact that many studies have shown that
people are much more disturbed by noise at night than at any other time.
An important feature of the Ldn descriptor is that it can be used to
describe environmental noise from all sources affecting a receiver, and
therefore not limited to describe one or two sources only (HUD, 1991).
1.3.3. Abatement measures and strategies
Noise has a definite path from its generation at the source to its
perception by the receiver, which is usually called the ‗source-pathreceiver framework‘ (Fig. 1). The source generates noise levels which
depend upon type and operating characteristics. Between the noise
source and the receiver there is a propagation path where different
factors like distance and obstacles (barriers), among others, attenuate
noise levels. At the receiver, the noise levels from different sources
combine themselves into a single noise level after travelling along the
propagation path (Hanson et al, 2006).
Newman & Kenworthy (1999) demonstrated that a reduction in vehicle
noise is influenced by factors like traffic volume and composition, street
layout and surface, vehicle speed and driving style. Based on this
framework, noise abatement measures can be distinguished by a clear
hierarchy that establishes their focus on specific mitigation objectives
(Kloth et al, 2008): a) noise avoidance and reduction at the source, b)
reduction of noise propagation, and c) noise reduction at the receiver.
All these calculations and noise abatement strategies have the purpose of
avoiding noise conflicts on a long-term basis and therefore to provide a
livable urban environment before recurring to reactive abatement
measures, which sometimes are highly less cost-effective.
1.3.4. Local Action Planning
The idea of Noise Action Plan is still not an issue for local authorities or
municipalities in Chile, even though it has been already suggested by
Chilean environmental authorities for further implementation
(Valdebenito, 2009). Since the topic is still not widely understood and no
previous experience exists in Chile, the use of international guidelines
and experiences emerges as a necessary alternative for exploring the
possibilities of noise action planning in Providencia.
The European Directive on Environmental Noise, Directive
2002/49/EC, establishes that after collecting detailed information on the
number of people exposed to noise through noise maps, ‗action plans
should address priorities in those areas of interest and should be drawn
up by the competent authorities in consultation with the public.‘ (The
European Parliament and the Council of the European Union, 2002) It
is in this context that the Sixth Framework Programme of the European
Commission co-funded two research projects, SILENCE and QCITY.
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Figure 2. Different steps within the elaboration of an action
plan, as proposed in the SILENCE project (Source: Kloth et
al, 2008).
These projects have been developed in order to provide tools for the
elaboration of a Local Noise Action Plan, which are used in this study.
The SILENCE (Quieter Surface Transport in Urban Areas) project
provides world-leading technologies and innovative strategies for the
efficient control of noise caused by urban road and rail transport in
European cities, through the online publication of a practitioner
handbook and technical reports (Silence Project, n.d.). On the other
hand, QCITY (Quiet City Transport) provides municipalities with tools
to establish noise maps and action plans, with a broad range of validated
technical solutions for the specific hot-spot problems, also by publishing
online complete technical reports (Qcity Project, 2008).
A Local Noise Action Plan, as mentioned in Kloth et al (2008), aims to
improve the noise situation ‗in areas where the noise exposure of
residents is considered too high, and protecting relatively quiet areas as
recreational zones on urban or rural environments‘ by avoiding and
mitigating noise. Figure 2 offers an overview of noise action planning
step by step, which may not necessarily constitute a linear process. The
methodology of this study is based on the first steps of the procedure
proposed in Kloth et al (2008). Therefore this study evaluates measures
and strategies from an action plan perspective and explores its further
adaptation to Providencia.
Involving stakeholders during the process constitute an important
challenge, where different actors (public, municipality, government,
companies) must interact and negotiate each other for reaching a
satisfying agreement. Even when public participation is valued in this
study and is considered as a relevant aspect in the action planning
process, no research on types of participation or perception of public is
included herein since it can be considered as a separate study by itself.
The basic issues involved of a noise action plan are (Kloth et al, 2008):

Sets noise reduction targets, describing the means to achieve
them;

Sets priorities and schedules the implementation of measures;

Names responsible agencies, expected costs and funding
mechanisms for its implementation;
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Rodrigo López

Specifies expected noise reductions of measures, as well as time
frames for monitoring and evaluating results;

Includes maps and descriptions of noise problems, both for
their identification (hot spots) and for the measures to be used
for their mitigation.
As mentioned earlier, this study is based the first four steps from this
action planning process (Fig. 2), and not all of the mentioned issues
stated before are achieved. Some of them, like implementation schedules
or monitoring, require further research and are out of the scope of this
study.
1.4. Environmental noise in context
The numerous urban planning disorders, linked to population explosion,
have generated a greater demand for private and public transport. The
eradication of trams and trolleys at the beginning of the 1950‘s, together
with the introduction of diesel engines, resulted in a noticeable increase
in noise in the city of Santiago. A high rate of housing growth, their
limited quality (poor insulation), the shortage of green areas and narrow
streets, among others, result in levels of both external and internal noise,
excessive for the population (Valdebenito, 2009).
A first study of noise levels in Santiago was made in 1989 to evaluate and
analyze community noise outdoors in order to establish possible risks for
exposed people, by measuring noise levels and then comparing them
with national and international criteria. In 2001 an update study was
published by the Metropolitan Health Service in order to compare both
measurements and to evaluate the exposure of people to noise in
Santiago. The results of this study show that (SESMA, 2001):

The percentage of people exposed to nighttime noise, causing
interference with sleep, has increased. For the range of noise
levels over 70 dBA, the percentage has doubled;

There is no area suitable for residential use (day-night sound
pressure level lower than 65 dBA);

The percentage of people exposed to hearing damage has
increased, always over the values internationally accepted.
In 2009, at the 9th Seminary on Noise Pollution and Control, the Chilean
National Environment Commission planned the implementation of an
environmental ordinance on noisy behavior from a proposed model
ordinance, considering the limitations of municipal ordinances regarding
noise control (Henríquez, 2009).
On the other hand, during the second semester of 2009 CONAMA
tendered the elaboration of a study containing a noise map and
community response to noise for two Chilean communes, Antofagasta
and Providencia, in order to find out at which noise levels people are
actually exposed and to prepare a municipal strategy later on.
In general, the urban noise problem in Santiago has been largely
managed up to date by the Health Authority Office and the National
Environment Commission through the verification of compliance with
the existing noise standards, but no action plan at the local level has been
implemented yet. As it will be described later, the existing legislation in
Chile is mainly intended for control of noise levels from specific sources
instead of providing general standards for life quality of people, which
explains the more reactive attitude from both authorities and the private
sector.
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1.5. Providencia, the commune
1.5.1. Agglomeration description
The commune of Providencia is located at the East zone of Santiago,
capital of Chile, in South America, and is one of the 51 communes
integrating the Metropolitan Region. Founded in 1897, Providencia has
developed during the 20th century as a mainly residential and
commercial commune, being most of its productive and commercial
activities around the commune‘s main avenues: 11 de Septiembre, Pedro
de Valdivia, Tobalaba, Los Leones and Providencia, the latter being at
the same time the natural continuation of the most important axe of
Santiago, Alameda Bernardo O‘Higgins Avenue. As of 2007, Providencia
concentrates a 77.6% of its permits on the commerce area, with a
territorial tax equals to €12,600,000 (Municipalidad de Providencia,
2007).
Once a former suburb of the Ñuñoa commune, Providencia is now
sharing its border with the communes of Ñuñoa, Las Condes, La Reina,
Recoleta and Santiago (Fig. 3). The location of the commune within the
metropolitan region of Santiago may be seen as the transition between
high-income communes, like Las Condes or Vitacura, to the city center
located in the commune of Santiago and more middle-class communes,
like Ñuñoa or Recoleta.
The commune of Providencia has an extension of 14.2 Km2 equivalents
to 0.43% of the total regional surface. It presents a subdivision into 16
neighborhood units for strategic analysis purposes, as showed in Fig. 4,
which is quite useful for identification of noise conflict areas.
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Figure 3. Location of Providencia commune within the Metropolitan Region of Santiago (Adapted from
Municipalidad de Providencia, 2007).
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Figure 4. Geographic distribution of the 16 neighborhood units (Adapted from Municipalidad de
Providencia, 2007).
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Rodrigo López
1.5.2. Demographic and Socio-economic data
According to a census elaborated in 2002 by the Chilean National
Institute of Statistics, Providencia has a population of 120 874
inhabitants from which 14% are children under 15 years old, 26% are
young people, 39% are adults and 22% are elderly people (Municipalidad
de Providencia, 2007). The population growth reaches 8.7% between
1992 and 2002, under a positive trend, in contrast with previous periods.
The socio-economic composition of population in Providencia is mainly
dominated by middle-high class. According to a poll elaborated in 2004
by the specialized company ADIMARK, a 36% of households in
Providencia have a monthly income range between €2,100 and €4,400,
whereas 38% have an income range between €760 and €1,500. At the
same time, the population and housing poll of 2002 establishes that at
least a 52% of the inhabitants of Providencia have a work (Municipalidad
de Providencia, 2007).
This demographic and socio-economic information may play an
interesting role in the noise control strategy since it enforces a focus of
the proposed measures into a highly residential population that values a
quieter environment, and perhaps showing more willingness to take part
on an environmental strategy for tackling noise problems.
1.5.3. Transportation
Transportation is considered as one of the most important noise sources
in the commune (Municipalidad de Providencia, 2007) and makes the
elaboration of a noise control plan much more complex due to the
mobile nature of the transport noise and the extension of its influence.
Providencia is quite well covered by the city‘s public transportation
system Transantiago and private transportation consisting on cars,
motorcycles and bicycles. According to a 2008 report from INE, the
actual car park in Providencia is 79 700 motor vehicles, from which 3
244 correspond to public transport, 75 638 to private transport and 891
to freight vehicles (Sariego & Blanco, 2009).
Transantiago is an initiative from the Chilean government implemented in
2007 consisting in both a subway system (Metro) with five lines and a bus
system with trunk and local services (Fig. 5). According to the national
record of passengers transport services published by the National
Transport Secretariat, the existing public transport bus park is 6,489
buses as part of Transantiago, with an average age of 4.4 years (SECTRA,
2010). Compared to the rest of vehicles types, public transport buses
constitute an important noise source because of their sound emission
Discontinued bikeway
Public transport buses
Figure 5. Pictures of existing transport infrastructure in Providencia.
11
power and exposure time to receivers, especially those old buses that are
still circulating throughout the city.
Bikeways are still a pendant issue in Providencia. Despite of the
existence of some bikeways within the commune, their short extension
and lack of connectivity between each other (Fig. 5) are aspects that
must be considered in the new Communal Master Plan elaborated by the
Planning Secretariat (SECPLA) in 2007 for implementing a wellestablished bikeways network.
The commune has a quiet flat surface, with an average slope of only 0.8
degrees, therefore offering ideal conditions for biking and walking
without relevant geo-morphological difficulties.
1.5.4. Land Use
The 2007 Communal Master Plan distinguishes two main kinds of
properties: public and private. Within the first classification it is possible to
find public parks and road system, while in the latter classification a list
of use types is provided, including:

Residential

Equipment (scientific, commerce, cult and culture, sports,
health, education, recreation, services, security and social)

Productive Activities

Infrastructure (transportation, energy and health)
 Green Areas
The land use zones established in the Communal Master Plan are shown
in the map of Fig. 6, and are described as follows (SECPLA, 2007):
UR = Residential Use, including restricted basic activities;
UpR = Residential Preferential Use, including restricted services;
UpR y Er = Residential Preferential Use and Restricted
Equipment;
UpR y E = Residential Preferential Use and Equipment (no
restrictions);
UpR y ECr = Residential Preferential Use, and Restricted
Equipment and Commerce;
UpEC = Commercial Equipment Preferential Use;
UpAP e Ir = Productive Activities Preferential Use and Restricted
Industrial.
This thesis takes in consideration the identification and analysis of noise
conflict areas within the commune in order to prioritize measures and
strategies based on the sensibility of exposed people.
1.5.5. Environmental noise situation in Providencia
According to an epidemiologic study of community noise in Providencia
elaborated by Varas in 1994 (Municipalidad de Providencia, 2007), ‗the
main environmental pollution factor is noise, which interferes with
resting activities and sleep‘. Another observation from the same research
is that there is a prevalence of the noise problem in specific
neighborhoods, like Bellavista. Nevertheless, this study is quite old and
more updated data is required for further analysis.
The main noise sources identified by the community of Providencia in
the last ten years are transportation, construction and industry. However,
in the last five years the impact of alarms and night clubs, like those in
the Bellavista and Suecia neighborhoods, also contributes to generate
12
Rodrigo López
even more nuisance in the population (Municipalidad de Providencia,
2007).
In 2002 a new study was made in order to evaluate noise as a decision
variable in territorial planning in Providencia (Quezada, 2002), which
results show a high incompatibility between noise levels and current land
use in roads with high traffic flow. According to the PLADECO
(Municipalidad de Providencia, 2007), these aspects were also considered
on the elaboration of the latest Communal Master Plan of Providencia.
In September-December 2009 a strategic noise map of Providencia was
elaborated on demand of CONAMA, together with a study for
determining the reaction of people at noise exposure in order to identify
the existing noise levels to which population is exposed and react. This
commission constitutes an experimental project based on a national
strategy for environmental noise control in Chilean communes.
The study identifies clusters affected based on the percentage Highly
Annoyance (%HA), establishing for instance that 40% of population is
highly annoyed in areas like Providencia Avenue, Manuel Montt Avenue
and the intersection Antonio Varas/Francisco Bilbao (Suárez et al,
2010), but their complete results will be publicly available only by mid2010.A non-published version of the strategic noise maps of Providencia
is included hereafter in Fig. 7 and 8, showing transit noise levels in the
whole commune.
1.6. Providencia, the municipality
1.6.1. Organizational structure
In order to establish responsibilities for the implementation of measures
and strategies related to a local noise action plan in Providencia it is very
important to firstly know the organizational structure of the municipality.
Fig. 9 shows a simple scheme with the different departments and
authorities in the municipality of Providencia that could be in charge of
determining responsibilities in the implementation of noise abatement
measures and long-term strategies.
The Municipality of Providencia is structured in a way that all
departments are directly under the Major‘s supervision, excepting the
urban consulting department which elaborates the development plan and
local ordinance with support from the other departments.
1.6.2. Development targets of Providencia 2006-2012
Providencia is emerging as a model commune, attractive to people as a
choice for living and investing. In the PLADECO there are specific
development horizons and a vision model as commune, composed by
the following aspects:

Nice for living, inserted in a metropolitan area;

Internationally outlined as referent of efficiency and innovation
in local management and service quality;

Example of urban development, respecting its cultural heritage,
environment and style;

Ideal place for family‘s integral development, with multiple
social and cultural events;
 Attractive place for investing and developing new business.
According to an online survey elaborated in 2006 only a 24% of voters
think that environmental management is relevant, whereas a 70% gave
importance to security within the commune. This information should be
13
considered when proposing and implementing an action plan for noise
control in the commune.
On the other hand, the ‗development horizons‘ of Providencia are:

Commune with better life quality

Sustainable development for Providencia

Leader in efficiency and innovation of local management

Providencia is projected as a business center
 Leader in the national and international context
All these development horizons are associated to ‗development strategic
lines‘, being only some of them relevant for the purposes of this study.
Table 2 presents the aim and objectives of those strategic lines which
constitute the local framework for the elaboration of environmental
action plans. These development strategic lines are going to be used
hereafter as criteria for evaluating abatement measures and strategies.
Table 2. Relevant strategic development lines of Providencia (Source: Translated
from Municipalidad de Providencia, 2007).
Strategic
development line
Aim
2.1 – Strengthen of
the local
environmental
management
To promote the design
and implementation of a
new institutional
framework for local
environmental
management of
Providence.
2.2 –
Comprehensive
management of solid
waste
To develop an
innovative and
participatory
comprehensive
management strategy of
household solid waste
(HSW).
2.3 – Providencia,
garden city
To promote the
development and
maintenance of squares
and parks for the
commune of
Providencia,
strengthening the
"Garden City" concept.
Objectives
-Diagnose the situation of environmental management at
local level;
-Design a municipal institutional framework for
environmental management at local level;
-Design and implement a local environmental agenda;
-Design and implement a local environmental action
plan;
-Evaluate and reframe the local environmental
regulations;
-Design and implement a population education system
on respect for their local environment.
-Periodical diagnostic of situation handling of the HSW
management at the local level;
-Design and implement a differentiated collecting system
for Providencia;
-Design and implement a local recycling programme;
-Develop an automated information system on situation
of HSW generation, collecting and disposal.
-Develop an comprehensive management strategy of
public space as a way to promote the harmonic
environment of Providencia;
-Equip and strengthen a network of local green areas
and consolidate it as a connectivity system in the
commune;
-Improve the level of lighting service in public spaces as
a strategy to increase its security;
-Fully improve roadways and sidewalks pavements
maintaining a high standard of operation and
functionality;
-Improve the infrastructure, equipment and services that
support the role of public spaces;
-Transform public spaces according to the requirements
and needs of users.
14
Rodrigo López
-Design, approve and evaluate the Communal Master
Plan of Providencia;
-Maintain and improve the intercity connectivity system,
with emphasis on compatibility of transportation (motor
vehicles, bicycle and pedestrian);
-Develop and enhance the neighborhoods that make up
the commune of Providence in the new Communal
Master Plan;
-Retrieve areas with historic values to the commune;
-Develop an ongoing program to improve the conditions
of road and transport infrastructure in the commune.
-Orient the quality management of Providence towards
the satisfaction of needs of residents and users,
improving the community and municipal services;
-Strength and improve the municipal environmental
management;
-Impulse the development of quality standards for the
efficiency of municipal finance management.
2.4 – Sustainable
territorial
management
To plan and develop a
sustainable
management of the
communal territory
according to their status
as part of a Metropolitan
Planning System.
3.1 – Quality and
environment
management
To enhance the quality
and environment policy
of the commune of
Providence under ISO
9001 and 14001.
3.2 – Modernization
of municipal
management
(services,
processes,
technology and
infrastructure)
To develop an ongoing
modernization strategy
of municipal
comprehensive
management, improving
the proper management,
technology and
infrastructure
development processes.
-Enhance the municipal management processes with an
innovative vision regarding final service provision;
-Develop a technology and information systems
modernization plan;
-Develop a comprehensive improvement and
maintenance plan of the existing municipal
infrastructure.
3.4 – Community
integration in the
local management
To encourage open
participation of different
social sectors.
-Improve the communication of diffusion actions of the
municipal management activities;
-Place the Providencia brand in all activities and
services performed by the municipality;
-Strengthen participation channels of the different social
sectors of the community.
4.1 – Central
commune, attractive
for investing
To impulse a
management strategy
from the approval of the
new Communal Master
Plan, reconciling the
aspiration of residents
with those of private
investors.
-Generate a positioning communicational strategy of
Providencia as the service centre commune of the East
area of the Metropolitan Region;
-Keep the garden city role by incentivizing the coherent
urban development with the ‘nice for living, attractive for
investing commune’ concept.
15
Figure 6. Land use zones in Providencia (Adapted from SECPLA, 2007).
16
Rodrigo López
Figure 7. Strategic noise map showing Ldn (Source: Suárez et al, 2010).
17
Figure 8. Strategic noise map showing Ln (Source: Suárez et al, 2010).
18
Rodrigo López
Figure 9. Organizational structure of the Providencia municipality (Adapted from Municipalidad de Providencia, 2007).
19
2. M ETHODOLOGY
The methodology used in this study is based on the one proposed by
Kloth et al. (2008), specifically regarding the preparation process
previous to drafting a noise action plan (Fig. 2). A SWOT analysis is
included in this case for evaluating implementation feasibility of
measures and strategies, as explained hereafter.
2.1. Review of legal framework
The purpose of this review is the assessment of the existing regulation
framework regarding its limitations and scopes as a decisive factor when
evaluating measures and strategies for the implementation of a local
noise action plan.
This study collects and reviews the existing regulation on environmental
noise in Chile, consisting in Noise Emission Standards and Acoustic
Insulation Requirements on Buildings. The consulted literature includes
Presidential Decrees and guidelines from different Chilean institutions
available online. On the other hand, the Local Ordinances of
Providencia related to environmental noise are considered as well for
analysis. Only some of these local ordinances are available online, and
the rest has been provided directly by the Environmental Hygiene
Department of Providencia.
2.2. Collection of noise abatement measures and strategies
In order to propose a noise abatement strategy this study reviews a list of
collected noise abatement measures and long-term strategies, some of
them already proposed and implemented in European cities and research
projects which results are available on technical reports and guidelines
(Pui-ying et al., 2002; Petersen & Schäfer, 2002; Desanghere, 2007; Kloth
et al., 2008;), as well as other relevant literature on traffic calming and
eco-driving (Newman & Kenworthy, 1999; CIECA, 2007). The selection
of these measures and strategies is based on their pertinence and
implementation feasibility considering the local conditions of
Providencia, some of them being not applicable in practice. Therefore
noise abatement measures for railway noise are not considered since the
subway train system goes underground, which does not generate outdoor
environmental noise.
2.3. Personal interviews
A series of interviews with five officials from municipal departments of
Providencia, selected from the organizational structure in Fig. 9, has
been undertaken during March-April 2010 in order to address the
following issues:

Internal coordination and communication between departments
within the municipality;

Environmental noise as relevant variable for decision making,
and the existing political will for the implementation of a local
noise action plan;

Collect expert criteria for the evaluation of noise abatement
measures taking part in the local noise action plan.
The interviewed officials are: Roberto Díaz (Environmental Control and
Hygiene Department), Sergio Ruminot (Public Works Department),
Gerardo Fercovic (Transit Engineering Department), Jaime Márquez
(Urban Consulter), and Pablo Villatoro (Cleaning, Ornament and
Maintenance Department).
20
Rodrigo López
2.4. Elaboration of noise conflict maps
A noise conflict map is quite useful as an analysis tool and allows the
identification of noise ‗hot spots‘ where action is required for abatement
and control. The noise conflict maps used in this study were obtained
after data processing of the strategic noise maps of Providencia
presented in Fig. 7 and 8 by the CONAMA acoustic engineer, Roberto
Quezada. The data processed from the strategic noise maps are the longterm descriptors Ldn (day-night sound levels) and Ln (night sound level),
which represents the existing noise levels in the commune of
Providencia.
2.4.1. Step 1
This study proposes recommended values for Ldn and Ln in residential
areas based on the review of existing noise assessment criteria like WHO
or HUD. The software CadnaA is used for creating a new noise map
showing all residential areas exposed to sound pressure levels higher than
the recommended values. The result consists in two layer files showing
sound pressure level curves for each noise descriptor, fulfilling the
exposing condition mentioned above, which are then exported to the
software ArcGIS.
2.4.2. Step 2
It was established that residential zones UR and UpR, according to
zoning criteria from the local ordinance (Section 1.5.4), should be
considered as sensitive land use exposed to environmental noise which
requires to be protected, or at least to be prioritized for action planning.
For this purpose a reclassification of the land use layer was generated in
ArcGIS containing only the two mentioned residential land use zones.
2.4.3. Step 3
The final step consists in the intersection in ArcGIS between the sound
pressure level curves from Step 1, showing areas where the
recommended noise values are exceeded, and the reclassified residential
land use layer according to the criteria exposed in Step 2, resulting in
noise conflict maps showing non-compliance residential areas.
2.5. Hot spot identification
The procedure of hot spot identification presented in this study is not
based on existing methodological attempts like the Noise Scoring
method proposed by Petz et al. (2006), which requires a more detailed
analysis of the strategic noise map. Instead, this study applies a basic and
straightforward method consisting in the selection of a hot spot based
on the geographic distribution of neighborhood units from Fig. 4.
The main criterion to select the hot spot is the number of people living
within noise conflict areas, and in this case the population data from the
sixteen Neighborhood Units existing in Providencia is used to identify
the one with the highest population within a noise conflict area.
Even when this procedure presents an important limitation, namely the
inexactness of the number of people exposed to noise, it was
nevertheless used in this study to illustrate the hot spot identification
process and its relevance in the prioritization of noise abatement
measures in practice.
2.6. Site visit
A site visit to the identified hot spot is undertaken in order to take
photographs of the physical environment and main characteristics of the
place. The analysis of the hot spot local conditions provides useful
21
information regarding prioritization and evaluation criteria when
implementing noise abatement measures and long-term strategies.
2.7. Evaluation of noise abatement measures and long-term
strategies
The evaluation of noise abatement measures and long-term strategies is
based on a SWOT analysis for assessing strengths, weaknesses,
opportunities and threats associated to each of them. In this case the
strengths and weaknesses are related to regulations and local conditions
of Providencia, whereas the opportunities and threats are more related to
external factors and consequences.
Certainly there are measures contained in a more general strategy since
the former ones may be considered as definite actions towards the
achievement of the latter ones. Besides the respective technical
observations provided in the reviewed literature, most of the evaluation
criteria used for this evaluation task rely on interviews held with
municipal officers and on the relevant development strategic lines of
Providencia.
22
Rodrigo López
3. R ESULTS
The obtained results are presented hereafter for the proposed
methodology, providing a useful basis for the implementation of a local
noise action plan in Providencia.
3.1. Review of national and local regulation on environmental noise
The legal framework on environmental noise in Chile is presented in this
study according to the scope of regulations, namely at the national level
and the local (municipal) level.
3.1.1. National regulation
The existing regulation on environmental noise in Chile consists in
Presidential Decrees and National Standards, where the former are
compulsory standards and the latter are recommendations or criteria
based on international standards. At the top of all these regulations, the
Constitution of the Republic of Chile (MINSEGPRES, 2005) and the
General Bases of Environment Act No. 19 300, which ensures ‗the right
to live in an environment free of pollution‘ (CONAMA, 2007), are the
legal framework for the elaboration of standards and other
environmental management tools.
A summary of the Chilean regulation on environmental noise is
presented in Table 3, where it is possible to note that decrees and
standards are aimed to both noise source and receiver.
It is worth to remember that only Presidential Decrees are compulsory
for fulfillment whereas quality standards, like NCh 352/1, are usually
considered as guideline to be used criteria purposes. On the other hand,
there are three draft standards focused on noise emission from different
sources:

Noise emission from construction sites;

Noise emission from airports; and
 Noise emission from vehicles and motorcycles.
Even when the Decree 146/97 (CONAMA, 2000) is described as a noise
emission standard for steady sources, it is totally focused on the receiver
regarding measurement and evaluation methods. This standard is largely
used for evaluating diverse steady noise sources like industry, bars,
discotheques, schools or recreational activities, when dealing with
complaints or when presenting impact assessments, and is controlled by
municipalities and the Health Authority.
Since this regulation identifies the noise source responsible for the noise
levels measured at the receiver, it has been a support tool for complaint
management and, in specific cases, for project design in an
Environmental Impact Assessment (EIA) context. At this moment there
is a revision of this standard, which is mainly about measurement
methodology and night-time noise limits.
The noise emission standard for public transport buses, Decree No.
129/03 (MTT, 2003), is an attempt to tackle urban noise by focusing on
one of the major traffic noise source. It establishes noise emission limits
for old and new buses through stationary and dynamic noise
measurements, intended to be undertaken during technical inspections
and roadside controls.
Nevertheless it is not possible to ensure the absolute applicability of this
standard in practice for even when official figures show that most of the
buses that area ready for service fulfill the requirements through a due
technical inspection (SECTRA, 2010), it is more difficult to verify
23
Table 3. Summary of existing Chilean regulation on environmental noise.
Issuing
Institution
Regulation
Chilean Standard
NCh 1619. Of.
1979
INN
Description
Noise evaluation according to community response, based on
quantity exceeded by the measured noise level at the receiver
regarding existing background noise (Instituto Nacional de
Normalización, 1979).
Maximum values for noise emission from steady sources (industry,
commerce, recreation, etc).
Noise levels are measured at the receiver for 3 to 15 minutes,
depending on the source type, and compared with the noise limits
established for its corresponding land use zone (CONAMA, 2000).
Decree No.
146/97
MINSEGPRES
Decree No.
129/03
MTT
Maximum levels for noise emission from buses of rural and urban
public transportation, as well as measurement methodology based
on stationary and dynamic tests (MTT, 2003).
Chilean Standard
NCh 352/1. Of.
2000
INN
Minimum requirements of acoustic insulation to be fulfilled by
residential buildings for external noise (INN, 2000).
Decree No. 47/92
(Art. 4.1.6)
MINVU
General ordinance of urban planning and construction. In Art. 4.1.6,
it establishes acoustic requirements for separation elements
between housing units (MINVU, 1992).
effective roadside control by municipalities or the police. In the case of
Providencia, and according to its acoustic engineer Roberto Díaz,
municipal inspectors do not make this kind of in situ control of buses
since they rest in the trust on the outcome of technical inspections.
Thus, the Standard does not provide an effective tool for controlling
transport noise and, together with its enforcement by on-road control,
must be considered only as complement within a general action plan.
Regarding acoustic conditions indoors, an implementation handbook of
Article 4.1.6 from the General Ordinance of Urban Planning and
Construction (Sánchez et al, 2006), about division elements for noise
coming from neighbor dwellings or external elements, is available. This
requirement is supposed to be fulfilled by building projects when
applying for permission at the Public Works Department. However, and
according to Title 5 from the same Ordinance, the Public Works
Department is not longer allowed to check the compliance with the
regulation on acoustic conditions once the building is finished and ready
to use. On the other hand, regarding façade insulation requirements for
outdoor noise, in the same article it is only recommended to follow the
Chilean Standard NCh 352/1, but is not compulsory. This results in the
impoverishment of the acoustic conditions of buildings for sensitive uses
like residential, health or educational, leaving the problem of noise
exposure indoors unsolved.
3.1.2. Local Noise Ordinances
The noise regulation framework at the local level in Chile consists in
municipal ordinances issued by the municipality in order to enhance their
functions for environmental protection, but always adjusted to the noise
emission standards or national legislation mentioned above (Henríquez,
2009). It is therefore an inherent function of a municipality to control
and ensure the compliance of the environmental regulation, with the
participation of and cooperation with the National Environmental
Commision (Henríquez, 2009).
In Providencia there is a Local Ordinance elaborated in 2007 as part of
the Communal Master Plan, which rules the maximum Environmental
Impacts Ranges (EIR) allowed at each zone for projects applying to a
municipal permit by setting noise limits. These noise limits are based on
24
Rodrigo López
Table 4. Maximum permitted sound pressure levels for each Environmental
Impact Range (Adapted from Municipalidad de Providencia, 2007).
EIR 1
Inoffensive
07-21 hrs
55 dB
21-07 hrs
45 dB
EIR 2
EIR 3
EIR 4
Annoying
Pollutant
Dangerous
07-21 hrs
60 dB
21-07 hrs
50 dB
07-21 hrs
65 dB
21-07 hrs
55 dB
07-21 hrs
21-07 hrs
70 dB
the Decree No. 146/97 and are shown in Table 4 (Municipalidad de
Providencia, 2007).
The presence of potentially impacting activities rates the urban sector on
which they are installed, setting a range which defines the activities that
can be installed in that area. In any land use within the territory of
Providencia is only allowed EIR 1, equivalent to harmless. Each land use
area may be related to an EIR, which establishes maximum acceptable
levels for that area by type of pollution and propagation paths
(Departamento de Asesoría Urbana, 2007b).
For every complaint from neighbors due to noise nuisance, the
municipal officers should check the compliance of the measured noise
levels at the receiver with respect to this Local Ordinances and apply
fines in case of non-compliance. On the other hand, every project
applying to a municipal permit in Providencia must comply with this
Local Ordinance in order to purchase it.
Besides the local ordinance, there are three more ordinances related to
noise:

Ordinance on construction, reconstruction, repair, alteration,
extension and demolition of buildings and urbanization, No.
13/2003, where rules regarding noise nuisance are established
for these activities (Municipalidad de Providencia, 2003).

Ordinance on Noise Nuisance in the Commune of Providencia,
No. 121/1996, regulates noise produced in all buildings and
places in which public or private activities develop, and
prohibits the cause or encourage of noise nuisance on behalf of
the peace and rest of the community (Municipalidad de
Providencia, 1996a).

Ordinance on Basic Health Standards, No. 122/1996, which
prohibits activities that lead to noise emission constituting a
health risk or annoyance to the community (Municipalidad de
Providencia, 1996b).
The control regarding compliance with the mentioned ordinances is
responsibility of municipal inspectors and the police (Municipalidad de
Providencia, 1996b). In case of non-compliance, they are able to
establish fines of up to €262 (Ministerio del Interior, 2006).
3.2. Noise assessment criteria
Since the existing environmental noise regulation in Chile is focused on
noise emission only, there is an emergent need of general criteria
regarding acceptable environmental noise levels in urban areas by
establishing targets and identifying noise conflicts.
For the case of Providencia, this study proposes noise criteria from two
internationally recognized organisms, namely the World Health
Organization (WHO) and the U.S. Department of Housing and Urban
Development (HUD).
25
Table 5. Population for every NU in Providencia (Source:
Municipalidad de Providencia, 2007).
Neighborhood Unit
1
2
3
4
5
6
7
8
9
10
11
12
13
14
15
16
Population 2002
3 201
7 383
7 670
8 593
14 013
8 334
12 030
12 863
9 285
7 305
2 216
3 599
3 761
5 185
8 543
5 075
The WHO provides guideline values arranged according to specific
environments and critical health effects, using the lowest noise level that
produces an adverse health effect (Berglund et al, 1999). For noise levels
during night time, a Lnight,outside (or Ln, Section 1.3.2) value of 55 dBA is
recommended as an interim target for countries that are not able to
achieve the night noise guideline (NNG) of 40 dBA (Hurtley, 2009). On
the other hand, the HUD has established that sites with a day-night
average sound level Ldn of 65 dBA and below are acceptable and are
allowable (HUD, 1991).
3.3. Hot spot identification and analysis
The noise conflict map is obtained from the intersection of noise criteria
(Ldn>65 dBA, Ln>55 dBA) and land use criteria (residential zones UR
and UpR). Table 5 shows the results from the 2002 population and
housing census elaborated by INE (Municipalidad de Providencia, 2007)
where Neighborhood Units (NU) No. 5, 8 and 7 are highly populated
ones (over 10 000 inhabitants), respectively. In this case, and according
to the proposed methodology, No. 8 is the most populated and noise
exposed one, therefore being identified as the hot spot.
For illustrative purposes only, the map from Fig. 10 shows noise conflict
areas based on the modeled night noise levels Ln where it is also
indicated the hot spot area.
As it was already mentioned the identified hot spot correspond to NU 8,
where residential areas are mainly affected by transit noise from the
following avenues: Suecia, Diego de Almagro, Ricardo Lyon and Pocuro.
A detail of the Ln levels in hot spot is shown in Fig. 11, indicating the
location of the mentioned avenues within the affected area, whereas Fig.
12 contains photographs of the same avenues.
After a site visit to the hot spot, and specifically to the main residential
avenues, it is possible to make the following observations:

The condition of the street pavement in general is quite poor
(Fig. 13), presenting several irregularities, which together with
some speed reduction devices like rumble strips (Fig. 14)
generate noise during vehicle pass-by;
26
Rodrigo López

The speed of vehicles is rather high, which even without proper
speed measurement it is possible to estimate in 60 Km/h, and
no speed limit sign was sighted;

Many heavy goods vehicles and motorcycles driven by the
mentioned avenues or even by local streets, which are quite
noisy and generally affects road safety.
There are already three main noise sources identified: street pavement,
vehicle speed and presence of noisy vehicles. On the other hand, it is
important to mention that there is no public transport movement
through the residential avenues of the selected hot spot, so traffic noise
is emitted exclusively from private vehicles. All these aspects are going to
be relevant as criteria when selecting noise mitigation measures and
strategies for their implementation as part of a local action plan.
3.4. Collected noise abatement measures and long-term strategies
The noise abatement measures related to transit noise are presented in
Table 6, containing a brief description of each one and their typically
reported noise reduction, whereas a list of long-term strategies focused
on transit noise is presented in Table 7.
27
Table 6. Summary of noise abatement measures.
Measure
Noise reduction at
site, in dBA
Truck routing
1-3 in hot spots
Noise barriers
Up to 15
Close off road for car
through traffic
3-14 (LD)
Decrease speed limit
3-4 (LD)
Restriction of noisy
vehicles by charges
or road barriers
3-14 (LD)
Low-noise road
surfaces
Low-noise waste
collection vehicles
3-4 (in relation to
dense asphalt
concrete)
25 (compared to
conventional
vehicles)
Check on noisy
vehicles
5-10
Low-noise night time
delivery
LeqA=60
Redesign of street
space
Depend on traffic
volumes and
composition
Junction design
1-4 compared to
ordinary
intersections
Calming green waves
2.5-3
Low-noise tram
SPL=75 (@ 40
Km/h, 7.5m)
Façade insulation
5-10
10-15
15-25
2-5
Building design
1-3
10-20
Building orientation
Depends on
configuration and
location.
Description
Restriction on heavy goods
vehicles in hot spot areas
Barriers located close to main
roads or highways
To close a road and reallocate the
noise source
Decrease speed limit resulting in a
reduction of noise levels
Create quiet areas by restricting
noisy vehicles by charges or road
barriers
Thin layer surfaces or porous
asphalts with 1 or 2 layers.
New waste collection vehicles
designed to reduce noise emissions
(e.g. gas-electric hybrid vehicles).
In-service control to motorcycles
and cars.
Delivery during night, using lownoise vehicle and equipment, and
trained staff.
Narrowing lanes
Planting trees and improving
surroundings
Reducing separations between
lanes, bikeways and walk sides
Mini-roundabouts (small paved or
painted circles in the centre of
intersections)
Coordinated signalization for traffic
flow fluidity, reducing design speed,
cycle time and green time
Low-floor trams, with resilient
wheels and ground-borne vibrations
(T3000 Bombardier).
4-6-4mm glazing
6-16-8mm glazing
Building lay-out with noise sensitive
rooms at quiet side
Façade design with setbacks in
high-rise apartment buildings
Sound absorbing façade material
(exterior side)
Double, transparent façade in
apartment buildings
Noise screening building block(s)
28
Involved municipal
department(s)
Transit and urban
consulting
Transit and urban
consulting
Transit and urban
consulting
Transit
Transit and urban
consulting
Transit and public
works
Cleaning, ornament
and maintenance
Environmental
hygiene and transit
Transit and
environmental
hygiene
Transit and urban
consulting
Transit and urban
consulting
Transit
Transit and urban
consulting
Public works
Public works
Public works
Public works
Public works
Public Works
Public works and
urban consulting
Rodrigo López
Table 7. Summary of long-term strategies.
Strategy
Public
awareness
rising
Change driver
behavior
Promoting
modal shift
Land use
planning and
building design
Taking
advantages of
changes
Complaint
management
Description
Consulting and informing the public during the development of the
noise action plan, in order to generate understanding about noise
and, ultimately, to change their behavior.
Low-noise driving style: shift up between 2000-2500 RPM; use
the highest gear possible and drive with low engine RPM
maintaining a steady speed; decelerate smoothly, leaving the car
in gear.
Reducing total dependence on the automobile and promoting a
more self-sufficient community with a transportation system
oriented to pedestrian, cycle, and transit use. This may be
achieved through traffic calming, improvement of public transport
and cycling facilities, and mobility management.
Noise avoidance and mitigation is taken into consideration from
the very beginning of a new or re-development. Land use plans
can indicate quiet areas to be protected, creation of green areas
and allocate noise-sensitive areas distant enough from future
noise emissions. It may also reduce the need to travel and the trip
distances, support walking, cycling, public transport and restrict
car use. Building design includes using noise-compatible
buildings as noise barriers, room plan, and shape, structure and
orientation of buildings.
Periodical renovation is an opportunity to buy low-noise
equipment and vehicles for transportation, waste collection,
construction, etc., as well as to replace the old road surface for a
low-noise road surface.
Collection and analysis of noise complaints provide useful
information on noise annoyance, and contribute to hot spot
detection and analysis.
29
Involved municipal
departments
Community
development
Community
development and
transit
Urban consulting,
transit and public
works
Urban consulting,
transit and public
works
Administration and
finance, cleaning,
ornament and
maintenance
Environmental
hygiene
Figure 10. Noise conflict maps based on Ln values, with selected hot spot area (Adapted from
CONAMA, 2010).
30
Rodrigo López
TRITA LWR Degree Project
Figure 11. Detail of hot spot area showing Ln values (Adapted from CONAMA).
31
Diego de Almagro Street
Ricardo Lyon Street
Pocuro Street
Suecia Street
Figure 10. Photographs taken during site visit in hot spot area.
Figure 11. Pavement in bad conditions.
Rumble strips
Street with cobble stone
Figure 12. Irregularities in road surfaces.
32
Rodrigo López
3.5. SWOT analysis
Giving the previous noise abatement measures and long-term strategies,
a SWOT (Strengths, Weaknesses, Opportunities and Threats) analysis is
carried on in order to evaluate their implementation feasibility as part of
a local noise action plan in Providencia. Table 8 and Table 9 show the
results of the evaluation for noise abatement measures and long-term
strategies, respectively.
Table 8. SWOT analysis of noise abatement measures.
Measure
Strengths
Truck
routing
Strategic
development line
2.1; heavy traffic is
an important transit
noise source
(effective).
Noise
barriers
Strategic
development lines
2.4 and 3.1; highly
effective; noise
reduction outdoors
and indoors.
Close off
road for car
through
traffic
Decrease
speed limit
Restriction
of noisy
vehicles by
charges or
road
barriers
Low-noise
road
surfaces
Strategic
development line
2.1; low impact on
accessibility (travel
time, person-hours
travelled); low
implementation
costs.
Strategic
development line
2.4; municipal
attribute; low impact
on accessibility
(travel time, personhours travelled); low
implementation
costs.
Weaknesses
Highly effective if
implemented in a
regional basis;
require joint work
with metropolitan
authorities for
design of new
routes for public
transport.
Highly expensive;
some barriers (earth
mounds) require too
much space (land
availability);
decision is usually
taken by
government
institutions.
Opportunities
Threats
High effect on
noise annoyance
reduction;
contribute to road
safety (traffic
calming) and road
hierarchy.
Increased noise levels
elsewhere due to
rerouting; accessibility
to construction sites and
commerce; road surface
impoverishment in
alternative routes.
Complement to
noise screen
buildings;
contribute to road
safety
(pedestrians).
Problems with local air
circulation; negative
visual effects (intrusive).
Require informing
people on time
through effective
campaigns.
Contribute to road
safety (traffic
calming) and road
hierarchy; create
quiet areas.
Increased noise levels
elsewhere due to
rerouting; annoyance to
community/domestic
noise (sensibility) may
increase due to lower
transit noise levels
(background noise).
Require efficient
speed control
system; joint work
with other
municipalities and
national agents may
be needed.
Contribute to road
safety and
improved air
quality (traffic
calming); low fuel
consumption.
Willingness of drivers to
comply with speed
limits; increased noise
levels elsewhere due to
rerouting.
Contribute to road
safety (traffic
calming) and road
hierarchy; create
quiet areas.
Higher noise levels in
boundary roads due to
rerouting; effects on
commerce and
accessibility; small
leakage effects on
nearby pedestrian
streets.
Decrease rolling
resistance, thus
lowering fuel
consumption; less
car maintenance.
Increased vehicle speed
due to smoothness of
road surface; water runoff during heavy rains;
circulation of heavy
goods vehicles may
deteriorates road
surfaces.
Strategic
development line
2.1.
Dependence on
quiet vehicles; high
implementation
costs (additional
parking space,
charging system).
Strategic
development lines
2.3 and 2.4; cheap
and simple noise
abatement measure
compared to others
(barriers, façade
insulation); road
surfaces must be
repaired and
maintained anyway.
No regular paving
plans (Fercovic,
2010); historic value
of cobble stones in
some main avenues
(Fig. 13); attention
must be paid to
maintenance and
repair; some road
surfaces may be
expensive
compared to regular
ones; compliance
with existing
regulation.
33
Low-noise
waste
collection
vehicles
Check on
noisy
vehicles
Strategic
development lines
3.1 and 3.2; fleet
renewal must be
done anyway every
5 years for private
contractors, 10
years for municipal
vehicles (Villatoro,
2010).
Strategic
development lines
2.1 and 3.1; existing
standard on noise
emission from public
transport buses;
draft standard on
noise emission from
vehicles and
motorcycles;
cooperation
between the
municipal
environment
department and the
Metropolitan Health
Authority.
Some vehicles and
vehicle parts may
be expensive;
attitude of workers,
and collection
schedule and routes
should be
considered.
Air pollution is
reduced; workers
shouts during
collection should
be reduced
(Villatoro, 2010).
Lack of cooperation with
other departments;
conflicts between mixed
land use and collecting
schedule; new high-rise
buildings increases
waste load and requires
new collecting routes
(Villatoro, 2010).
Experienced staff
and equipment as
precondition for
effectiveness.
Reduction of noise
peaks generated
by motorcycles;
collection of fines
for funding
purposes.
Traffic congestion and
high impact on
accessibility due to inroad test procedure.
Costs of low-noise
vehicle and
equipment, and
(more) trained staff;
existing ordinance
is not punitive
(Fercovic, 2010);
willingness of store
owners and delivery
companies to
comply with existing
ordinance.
Reduction on
traffic congestion
during daytime;
more expedite
traffic and
available parking
for delivery
companies.
Annoying nighttime
noise in mixed land use
areas in case delivery
procedure is not a lownoise one.
Effects on accessibility
(travel time, personhours travelled);
load/unload problems in
front of commerce and
schools.
Low-noise
night time
delivery
Strategic
development line
2.1; municipal
ordinance on
loading and
unloading hours.
Redesign of
street space
Strategic
development lines
2.3 and 2.4;
previous traffic
calming experiences
(chicanes,
bikeways, jogging
tracks, gardens);
successful
participation in
public urban
planning
competitions
(Márquez, 2010).
Complex intermunicipal and interdepartmental
coordination may be
required; people
(drivers)
acceptability;
comply with existing
regulation.
Reduce
annoyance
caused by noise;
more space for
pedestrian and
cyclists;
compliance with
road safety and
speed limits;
increased
accessibility for
handicap and
elderly people.
Junction
design
Strategic
development lines
2.3 and 2.4.
Considered as
dangerous by the
Transit Engineering
Department
(Fercovic, 2010);
high cost compared
to expected noise
reduction.
Speed reduction;
more even driving
patterns; influence
of roundabout
design on noise
levels due to
overrun areas.
Accidents due to poor
driving education
resulting in injury to
pedestrians and
cyclists, vehicle
crashes, etc (Fercovic,
2010).
Calming
green
waves
Strategic
development line
2.4; low
implementation
costs; municipal
competence.
Conflict occurred on
major crossing
streets due to
mobility problems
(access
preference).
Smoother driving,
resulting in lower
noise levels and
less air pollution.
Potential conflicts
between environmental
benefits and people
mobility (Fercovic,
2010); driver
acceleration for
catching signalization
cycle.
34
Rodrigo López
Low-noise
tram
Strategic
development lines
2.3 and 2.4.
Façade
insulation
Strategic
development lines
2.3 and 4.1; Chilean
standard NCh
352/2000; included
in architectural
design.
Building layout with
noise
sensitive
rooms at
quiet side
Strategic
development lines
2.3 and 4.1;
included in
architectural design.
Façade
design with
setbacks in
high-rise
apartment
buildings
Strategic
development lines
2.3 and 4.1;
included in
architectural design.
Sound
absorbing
façade
material
(exterior
side)
Strategic
development lines
2.3 and 4.1; some
green façade
examples in
Santiago.
Double,
transparent
façade in
apartment
buildings
Strategic
development lines
2.3 and 4.1; highly
effective regarding
noise reduction.
Noise
screening
building
block(s)
Strategic
development lines
2.3 and 4.1.
Quietness may be a
problem for
approaching
detection by blind
people; unknown
effects of ground
vibrations;
expropriations may
cause conflicts with
residents.
NCh 352/2000 is
not compulsory;
very expensive.
Effect on indoor
noise level in
sensitive rooms
only; willingness of
private companies
and local
authorities;
constraints related
to building
regulation
(conflicting
requirements,
loopholes).
Effect mainly on
indoor noise level;
willingness of
companies and
local authorities;
constraints related
to building
regulation
(conflicting
requirements,
loopholes).
Material may
require regular
maintenance (high
costs); availability of
suitable products
and trained staff;
willingness of
involved
stakeholders.
Expensive
implementation and
maintenance;
availability of
suitable products
and trained staff;
willingness of
involved
stakeholders; must
be placed towards
north, northwest,
northeast or east.
Special precaution
for noise exposed
façade; land
availability for new
projects.
35
Reduce energy
consumption;
improve road
safety; beautify
the urban area,
making it more
attractive for living
and tourism;
improvement of
citizen attitude
towards public
transport (modal
shift).
Contribute to
energy saving
(passive building
principle); regulate
temperature
indoors; increased
property value.
May stiffen the transport
system considering
actual situation of public
transport being buses
more flexible in this
case (Márquez, 2010).
Construction companies
not willing to comply for
new buildings; not
enough support from
the ministry on housing
and planning (Ruminot,
2010).
Marketing based
on acoustic
comfort compared
to other buildings.
Noise nuisance due to
noisy behavior of
neighbors or night clubs
on ‘quiet side’ at mixed
land use quarters.
Original and
innovative
architectural
design is more
attractive; use of
terraces for urban
agriculture.
Water accumulation and
filtration problems due
to heavy rains on
terraces/balconies;
birds and garbage
accumulation on
terraces/balconies.
Effect on outdoor
noise level (in
front of façade)
and indoor noise
level (opposite
buildings); natural
material or
vegetation (green
facade) also helps
to regulate
temperature and
to capture air
particles (CO2).
Visibility may be
affected when using
vegetation;
Building identity
and aesthetical
value; may protect
northwest facades
from afternoon
sunlight during the
summer.
Unwanted sunlight
reduction; visibility
impoverishment.
Can be combined
with efficient traffic
flows, traffic safety
and positive
economic result.
Demand of available
apartments on noisy
façade (Ruminot, 2010);
lack of sunlight on
noise-shadowed side.
Table 9. SWOT analysis of long-term strategies.
Strategy
Strengths
Weaknesses
Public
awareness
rising
Strategic
development
lines 2.1 and 3.4.
Cost and time
demanding;
require enough
trained staff;
require continuity
in time.
Change
driver
behavior
Strategic
development line
2.1.
Require staff
trained for control;
limited
competence of
municipality.
Promoting
modal shift
Strategic
development line
2.4; previous
traffic calming
experiences in
the commune
(chicanes,
humps, rumble
strips, continued
sidewalks,
bikeways); public
bikes for renting
in Providencia.
Require
education and
information
campaigns;
require trained
staff for control;
require
involvement of
national agencies
and other
municipalities;
most of existing
bikeways fulfill
recreational
needs only
(Ruminot, 2010).
Reduce accidents in
urban areas; reduce
local air and noise
pollution; improve
the urban street
environment for
non-car users;
enhance local
economic activity by
creating better
environments;
improvement of
public
transportation.
Poor quality of existing
public transport and
infrastructure (Fig. 5); poor
driver/pedestrian/cyclist
behavior and education;
some traffic calming
devices, like rumble strips
(Fig. 13), may generate
more noise.
Considering noise
at an early stage
avoids unnecessary
mitigation measures
later on; more green
areas improve air
quality and regulate
temperature, giving
attractiveness to the
commune; value
added of quietness
as new business for
real estate
companies;
incorporation on
national legislation.
Protected quiet areas may
be unexpectedly exposed
to noise due to unknown
future land use policies;
building requirements may
discourage real estate
investment.
Reduce air
pollution; improve
occupational health;
reduce energy
consumption;
revitalize local
business.
Storage/recycle problems
of used machinery or
garbage; smoother road
surfaces motivate increase
of vehicle speed.
Useful for hot spot
detection and
analysis.
Public awareness about
noise may result in too
many complaints to
handle; pressure for
solution from people close
to local authorities (Díaz,
2010).
Land use
planning and
building
design
Strategic
development
lines 2.3, 2.4 and
4.1.
Lack of
knowledge or
expertise;
compliance with
existing
regulation;
modification of
local ordinance
for its
enforcement.
Taking
advantages
of changes
Strategic
development
lines 3.1 and 3.2;
renewal of
vehicles and
equipment must
be done anyway.
‘Long lasting’
principle of the
municipality
(Villatoro, 2010);
availability of lownoise vehicle and
equipment parts
on the market.
Complaint
management
Strategic
development line
3.1; existing
noise control
department with
experience in
complaint
management.
Not enough
trained staff and
equipment.
36
Opportunities
Enhance public
participation;
informed complaints
contribute to more
demanding
standards and
control.
Reduce accidents;
reduce fuel
consumption; help
to car maintenance;
help to manage
stress; collected
fines help to finance
this or other
programmes.
Threats
If mishandled in the
beginning of a noise action
plan it may jeopardize its
public approval; more
complaints due to people
awareness (Díaz, 2010).
Driver willingness
influenced by external
factors like market
economy
(competitiveness) and
education level.
Rodrigo López
4. D ISCUSSION
Identified as a major environmental concern in Providencia, noise
pollution has become a challenge for local authorities even when it has
been partly addressed only by applying the existing Chilean Regulation as
part of complaints management. Nevertheless, from the perspective of
municipal officers it was found in this study that environmental noise is
not on the political agenda to be considered a decision variable in local
planning, and that the cooperation mechanisms between municipal
departments are still poor to ensure the holistic approach needed for
local noise action planning.
The review of environmental noise regulation applicable to Providencia,
consisting in National Standards and Local Ordinances, highlighted two
relevant aspects for discussion:
First, there is a need for environmental authorities to adopt a criteria
regarding human exposure to transit noise as the proposed in this study
from WHO and HUD, since it is a precondition for defining target
values based on long-term noise descriptors such as Ldn and Ln in the
implementation of a Local Noise Action Plan. The scope of the existing
Noise Regulation is the noise emission from a single source but it does
not consider the total noise exposure level at the receiver. Thus, for
instance, it is insufficient to require a steady noise source like a power
unit to comply 50 dBA measured at a receiver during 15 minutes
knowing that, at the same time and place, transit noise level is 75 dBA
the whole day. As a consequence, even when Local Ordinances try to
address community noise (night clubs, car alarms, construction sites,
etc.) by regulating the ‗noisy behavior‘ of neighbors, the main problem of
transit noise is still unattended.
Second, it is clear that efficient control contributes to the success of
existing Noise Regulation since nothing can rely only on promises and
good intentions. As long as the control procedures are poor or
occasional, and the punishments for non-compliance are weak (less than
€300) it is useless to keep publishing new noise regulations in absence of
a definite action plan that integrates and promotes them.
The noise abatement measures and long-term strategies collected and
presented in this study are focused on transit noise and takes part of a
Local Noise Action Plan, as suggested in research projects like
SILENCE and QCITY. One relevant aspect to be considered for their
implementation in Providencia is the analysis of the local conditions of
the commune, for which a noise hot spot area was identified and visited.
Compared to the Noise Scoring method proposed by Petz et al, the
methodology for hot spot identification used in this study (Section 2.5) is
rather simple and straightforward due to the lack of enough technical
information and available time for data processing. However, the
obtained results are satisfactory enough to illustrate the aim of this
process and to check in situ the local conditions of noise sensitive areas.
During the site visit at the identified noise hot spot in Neighborhood
Unit No. 8, it was found that poor condition of road pavement and
circulation of noisy vehicles, like trucks or motorcycles, are relevant
aspects which promote the emission of transport noise in this residential
area.
A strategic noise map is definitively a powerful tool for experts and
decision-makers to set targets and prioritize measures to be taken within
a noise action plan. The noise map of Providencia offers a complete
diagnosis of the noise situation in the commune, giving the opportunity
37
not only to identify and analyze noise hot spot areas but also to identify
quiet areas to be protected, and to guide the land use planning process.
From the results of the SWOT analysis presented in this study, it was
found that the implementation of most noise abatement measures and
long-term strategies is conditioned by four main aspects: a) people
behavior, b) resources availability, c) municipal coordination and d)
political will.
Some transit measures like speed reduction or truck routing require
commitment from drivers to behave according to laws towards
cooperate in order to achieve real noise reduction, which may not be
greatly noticeable by people but only in the long term. Willingness of
drivers to comply with lower speed limits and vehicle restrictions is
strongly related to road safety education and public awareness on
environmental noise, two aspects that are not achievable in one or two
days.
On the other hand, cost demanding measures like facade insulation or
noise barriers may be well considered as impracticable for any
municipality that does not have a permanent governmental subvention
programme under a national policy context, which limits the scope of
local authorities for noise action planning.
Political will is found to be another key aspect in the elaboration of Local
Noise Action Plans. Coinciding with Newman & Kenworthy (1999),
some abatement measures and strategies like traffic calming should be
applied on an area-wide basis, which involves main roads requiring a
joint work between several municipalities and governmental
departments. This is the case for well-structured bikeways or public
transport improvement, which unfortunately are plans not only subject
to decision taken inside a single municipality.
In this regard it must be noted that measures and strategies must be also
approved and properly implemented by local authorities in cooperation
with official agents like ministries and other national institutions, a task
that may imply delayed deadlines and unexpected inconvenient in case
negotiations on funding and competences fail. Therefore, a fluid
communication and a permanent cooperation between authorities
emerge as sine qua non conditions for ensuring the success of a noise
action plan through the implementation of definite abatement measures
and long-term strategies. For this, the creation of a responsible agency to
coordinate the work of different stakeholders at the regional level (in this
case, the Metropolitan Region of Santiago) thus emerges as a reasonable
approach.
Long-term strategies like land use planning and building design are quite
restricted by the urban density of Providencia and its implications
regarding land availability and existing infrastructure, which suggests the
idea of considering complementary strategies. One example is promoting
the preservation of old, historic buildings in order to avoid noise and air
pollution generated by demolition and construction works in new
building projects. A lot of construction waste and consumed energy can
be saved by repairing old buildings with sustainable features for reuse,
keeping in mind that periodical maintenance is usually needed. This
strategy contributes to save the identity of a neighborhood and to
improve the environmental conditions of the commune (López, 2009).
Nevertheless it was found that all noise abatement measures and longterm strategies contribute to the achievement of the strategic
development lines of Providencia, especially regarding environment and
sustainability. The consolidation of the existing infrastructure and built
environment, and the non-expansive growing pattern of Providencia due
38
Rodrigo López
to its location within Santiago are physical constraints for environmental
noise control through urban planning strategies like using buildings as
noise barriers or allocate residential buildings far from noisy roads and
industries. Instead, local management must be seen as an immediate and
suitable way to address the noise problem taking into account the reality
of the commune, while at the same time awareness all involved
stakeholders as a priority long-term strategy.
Compared to national or regional scales local management presents clear
advantages regarding public involvement, joint work between authorities
and municipal autonomy that should be exploited for implementing
action plans. A cost-benefit analysis can be a good tool for decisionmakers in order to select and prioritize abatement measures and
strategies by observing the resulting noise reductions after their
implementation, which is a required input for estimating the number of
benefited people.
The possibility offered by a Local Noise Action Plan is available to
decision-makers as a holistic approach for addressing environmental
noise and thus improving the health and life quality of the neighbors of
Providencia. Considering the local conditions of the commune to
identify the strengths, weaknesses, opportunities and threats of proposed
abatement measures and strategies, as presented in this study, it is only a
part of action planning since it should also include effective public
participation. Only by attending the environmental, economical and
social dimensions of the commune it is possible to promote and,
ultimately, achieve true sustainable urban development.
39
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43

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