Balanced Approach to Aircraft
Noise Management
In 2001, the ICAO Assembly endorsed the concept of a "balanced
approach" to aircraft noise management (Appendix C
of Assembly Resolution
A35-5 (pdf)). The Assembly in 2007, reaffirmed the "balanced
approach" principle and called upon States to recognize
ICAO’s role in dealing with the problems of aircraft
noise (Appendix C of Assembly
Resolution A36-22 (pdf)). This consists of identifying
the noise problem at an airport and then analysing the various
measures available to reduce noise through the exploration
of four principal elements, namely reduction at source (quieter
aircraft), land-use planning and management, noise abatement
operational procedures and operating restrictions, with
the goal of addressing the noise problem in the most cost-effective
manner. ICAO has developed policies on each of these elements,
as well as on noise charges. The recommended practices for
balanced approach are contained in Doc 9829 – Guidance
on the balanced approach to aircraft noise management.
Reduction of Noise at Source
Much of ICAO's effort to address aircraft noise over the
past 40 years has been aimed at reducing noise at source.
Aeroplanes and helicopters built today are required to meet
the noise certification standards adopted by the Council
of ICAO. These are contained in Annex 16 — Environmental
Protection, Volume I — Aircraft Noise to the
Convention on International Civil Aviation, while practical
guidance to certificating authorities on implementation
of the technical procedures of Annex 16 is contained in
the Environmental Technical Manual on the use of Procedures
in the Noise Certification of Aircraft (Doc 9501).
The first generation of jet-powered aeroplanes was not
covered by Annex 16 and these are consequently referred
to as non-noise certificated (NNC) aeroplanes (e.g. Boeing
707 and Douglas DC-8). The initial standards for jet-powered
aircraft designed before 1977 were included in Chapter 2
of Annex 16. The Boeing 727 and the Douglas DC-9 are examples
of aircraft covered by Chapter 2. Subsequently, newer aircraft
were required to meet the stricter standards contained in
Chapter 3 of the Annex. The Boeing 737-300/400, Boeing 767
and Airbus A319 are examples of "Chapter 3" aircraft
types. In June 2001, on the basis of recommendations made
by the fifth meeting of the Committee on Aviation Environmental
Protection (CAEP/5), the Council adopted a new Chapter 4
noise standard, more stringent than that contained in Chapter
3. Starting 1 January 2006, the new standard became applicable
to newly certificated aeroplanes and to Chapter 3 aeroplanes
for which re-certification to Chapter 4 is requested. Most
recently, CAEP/8 in February 2010 requested the noise technical
group to review and analyze certification noise levels for
subsonic jet and heavy propeller driven-driven aeroplanes
and, based on the analysis, develop a range of increased
stringency options. This analysis will be considered at
the CAEP/9 meeting in 2013.
A Noise database NoisedB
was developed in 2006 by the French DGCA under the aegis
of the International Civil Aviation Organization (ICAO).
The database is intended to be a general source of information
to the public on certification noise levels for each aircraft
type as provided by certification authorities.
Land-use Planning and Management
Land-use planning and management is an effective means
to ensure that the activities nearby airports are compatible
with aviation. Its main goal is to minimize the population
affected by aircraft noise by introducing land-use zoning
around airports. Compatible land-use planning and management
is also a vital instrument in ensuring that the gains achieved
by the reduced noise of the latest generation of aircraft
are not offset by further residential development around
airports. ICAO guidance on this subject is contained in
Annex 16, Volume I, Part IV and in the Airport Planning
Manual, Part 2 — Land Use and Environmental
Control (Doc 9184). The manual provides guidance on
the use of various tools for the minimization, control or
prevention of the impact of aircraft noise in the vicinity
of airports and describes the practices adopted for land-use
planning and management by some States. In addition, with
a view to promoting a uniform method of assessing noise
around airports, ICAO recommends the use of the methodology
contained in Recommended Method for Computing Noise
Contours around Airports (Circular 205).
Noise Abatement Operational
Procedures
Noise abatement procedures enable reduction of noise during
aircraft operations to be achieved at comparatively low
cost. There are several methods, including preferential
runways and routes, as well as noise abatement procedures
for take-off, approach and landing. The appropriateness
of any of these measures depends on the physical lay-out
of the airport and its surroundings, but in all cases the
procedure must give priority to safety considerations. ICAO's
noise abatement procedures are contained in Annex 16, Volume
I, Part V and Procedures for Air Navigation Services
— Aircraft Operations (PANS-OPS, Doc 8168),
Volume I — Flight Procedures, Part V. On
the basis of recommendations made by CAEP/5, new noise abatement
take-off procedures became applicable in November 2001.
Doc 9888 – Review of noise abatement research
and development and implementation projects contains
a summary of two surveys of key aviation stakeholders conducted
in 2006 and 2009.
Operating Restrictions
Noise concerns have led some States, mostly developed countries,
to consider banning the operation of certain noisy aircraft
at noise-sensitive airports. In the 1980s, the focus was
on NNC aircraft; in the 1990s, it moved to Chapter 2 aircraft;
today, it has moved to the noisiest Chapter 3 aircraft.
However, operating restrictions of this kind can have significant
economic implications for the airlines concerned, both those
based in the States taking action and those based in other
States (particularly developing countries) that operate
to and from the affected airports. On each occasion, the
ICAO Assembly succeeded in reaching an agreement –
contained in an Assembly resolution – that represented
a careful balance between the interests of developing and
developed States and took into account the concerns of the
airline industry, airports and environmental interests.
In the case of Chapter 2 aircraft, the ICAO Assembly in
1990 urged States not to restrict aircraft operations without
considering other possibilities first. It then provided
a basis on which States wishing to restrict operations of
Chapter 2 aircraft may do so. States could start phasing
out operations of Chapter 2 aircraft from 1 April 1995 and
have all of them withdrawn from service by 31 March 2002.
However, prior to the latter date, Chapter 2 aircraft were
guaranteed 25 years of service after the issue of their
first certificate of airworthiness. Thus Chapter 2 aircraft
which had completed less than 25 years of service on 1 April
1995 were not immediately affected by this requirement.
Similarly, widebody Chapter 2 aircraft and those fitted
with quieter (high by-pass ratio) engines were not immediately
affected after 1 April 1995. Many developed countries including
Australia, Canada, the United States and many in Europe,
have since taken action on the withdrawal of operations
of Chapter 2 aircraft at their airports, taking due account
of the Assembly's resolution. This has had a substantial
impact in reducing noise levels at many airports. However,
the benefits of removing Chapter 2 aircraft have now been
largely achieved.
In the case of Chapter 3 aircraft, the ICAO Assembly in
2001 urged States not to introduce any operating restrictions
at any airport on Chapter 3 aircraft before fully assessing
available measures to address the noise problem at the airport
concerned in accordance with the balanced approach. The
Assembly also listed a number of safeguards that would need
to be met if restrictions are imposed on Chapter 3 aircraft.
For example, restrictions should be based on the noise performance
of the aircraft and should be tailored to the noise problem
of the airport concerned, and the special circumstances
of operators from developing countries should be taken into
account (Appendix E of Assembly
Resolution A35-5 (PDF)).
Noise Charges
ICAO's policy with regard to noise charges was first developed
in 1981 and is contained in ICAO's
Policies on Charges for Airports and Air Navigation
Services (Doc 9082/6). The Council recognizes that,
although reductions are being achieved in aircraft noise
at source, many airports need to apply noise alleviation
or prevention measures. The Council considers that the costs
incurred may, at the discretion of States, be attributed
to airports and recovered from the users. In the event that
noise-related charges are levied, the Council recommends
that they should be levied only at airports experiencing
noise problems and should be designed to recover no more
than the costs applied to their alleviation or prevention;
and that they should be non-discriminatory between users
and not be established at such levels as to be prohibitively
high for the operation of certain aircraft.
Practical advice on determining the cost basis for noise-related
charges and their collection is provided in the ICAO Airport
Economics Manual (Doc 9562), and information on
noise-related charges actually levied is provided in the
ICAO Manual of Airport and Air Navigation Facility Tariffs
(Doc 7100).
