Luebeck: Linking noise abatement planning and traffic planning

Abstract:

Lübeck is one of the few European cities which has tackled noise abatement planning on a city-wide scale. The methodic underpinning for this was provided by noise maps, which were supplemented by surveys of persons exposed to different noise levels. In this way it was possible to identify areas where there was particularly serious need to take action. The results of the process are designed to be incorporated into the city's traffic and transport planning.

Initial situation

The Hansa City of Lübeck, with a population of just about 220,000 inhabitants, is the second largest city in the German Federal state of Schleswig-Holstein; since the opening of the inner-German border in 1989 it has become a focal point for approx. 600,000 people, compared to 350,000 when Germany was divided. This increase in the catchment area was accompanied by an increase in inner- city traffic in Lübeck of about one-sixth. In addition there was pressure due to increase in heavy goods vehicle traffic on European roads, affecting the A1 motorway to the west of the city and the A20, currently under construction but with opened sections already in use to the south of Lübeck.

This was the background of changed conditions and initial moves at the beginning of the 1990s to calm traffic in the city centre, when in 1993 the Hansa City of Lübeck decided to commission drawing up a commensurate traffic and transport development plan.

As part of noise abatement planning, at almost the same time noise maps were compiled for roads in Lübeck and for railway routes. Surveys of inhabitants exposed to noise supplemented these maps, thus enabling a figure to be reached showing residents affected and at health risk due to noise in excess of determined and use-oriented guideline levels.

This representation of noise exposure as applied to the human factor of 'person' also persuaded traffic development planners, who up to that time had no available and reliable indicators to assess the effects on inhabitants of varying planning options. For future development in Lübeck's traffic planning, a way was found to represent the noise factor indicator in order to assess and discuss alternative scenarios for activities and development from the optimum approach with regard to noise exposure.

There follows blow in essence the results of these scenario assessments, preceded by comments on the tools used in Lübeck to capture and depict noise exposure of various kinds.

Tools used to portray noise pollution

Inexpensive noise mapping

In principle, three different types of noise maps can be identified, based on the level of detail included:

1. 'coarse' level of detail: calculations include only the effects of unimpeded sound propagation.
2. 'average' level of detail: calculations include structures in the vicinity of the noise source and the terrain, as well as surfaces which also reduce noise through built structures in a wider radius from the noise source.
3. 'fine' level of detail: calculations include structures in the vicinity of the noise source and the terrain, plus all the built structures with their location and height in the whole area under survey.

Lübeck decided on the 'coarse' level of detail. However, it was ensured that both traffic routes and existing buildings were included in the survey in their location. This procedure has the following advantages:

• in order to carry out its own technical noise studies the city has at its disposal the digital model which it can turn to and can then adapt to the requirements of the particular instance;
• drawing up noise maps for the whole city for rail and road traffic routes cost no more than approx. 30 Pfennig per inhabitant, which is very modest indeed;
• a noise map in 'coarse' detail produces noise maps which are sufficient to cover the 'entire city' level of information and qualified statement.

Surveys of persons affected quantifies noise pollution

Noise maps are in the first instance suitable as overall presentation of noise exposure and are indispensable to document noise problems. However, if consideration is being given to specific concepts for noise abatement planning and decisions of a political nature are to be taken, the calculations need to take account of residents affected by noise. For this reason the City of Lübeck supplemented noise maps with surveys of persons exposed using the following indicators:

• persons with risk to health (inhabitants where noise assessment levels exceeded 65 dB(A) either during the day or night;
• persons whose sleep was disturbed (inhabitants where levels exceeded 45 dB(A) at night;
• persons exposed by day (inhabitants where assessment levels exceeded the daytime guidelines adjusted to function);
• persons exposed at night (inhabitants where assessment levels exceeded the nighttime guidelines adjusted to function);
• daytime exposure level (in layman's terms: number of persons exposed multiplied by the level by which the daytime guidelines are exceeded);
• nighttime exposure level (in layman's terms: number of persons exposed multiplied by the level by which the nighttime guidelines are exceeded

In order to ascertain numbers of those exposed and exposure levels, use was made of the threshold limits in the ordinance concerning protection from road traffic noise.

Linking noise abatement planning and traffic development

Investigation methodology

In the course of implementing traffic development planning for the City of Lübeck, a variety of different scenarios was considered and subjected to evaluation in accordance with various criteria. Initially, the noise exposure suffered by Lübeck inhabitants played a subordinate role. This was perceived to be unsatisfactory, and the noise exposure survey which had been compiled in the context of noise abatement planning was used to subject five different scenarios with regard to traffic development planning to a closer scrutiny:

• road rebuilding scenario: the starting point here that all  roads (lanes) would be expanded, i.e. additional efforts given only to  greater provision for individual motorised (privately- owned) traffic;
• continuity of existing trends scenario: this scenario would  give priority to road construction of important regional and municipal  routes; it would also incorporate introduction of an 'express bus' system;
• 'environmental' scenario: this includes construction of a  tram and/or light rail system, plus additional express bus routes and thus  aims to improve mobility by other than private vehicle means, i.e. by  walking and bicycling;
• 'environmental' plus bus scenario: this assumes an improved  bus network and thus general extension of services operated, but without  tram/light rail;
• the target scenario: is to be pursued at the political level  and involves an improved, noise abatement favourable, environmental plus bus  scenario.

An evaluation was made of the changes expected as a result of these various scenarios, for the year 2010, compared with the situation as it was analysed in 1994 (1994 analysis) on the basis of the indicators already specified.

What follows is a summary of the results on a whole city basis. In the expert survey commissioned, however, the results of the study are also given for stretches of roads and as applied to districts within the city. The 10 city districts were portrayed using multi-coloured layout maps (plans) giving details of the level of noise exposure section by section, and results were also presented in further detail in tabular form.

Comparisons between the various scenarios in traffic development planning

The tables below enable comparisons to be made between the various scenarios; it can be seen that noise exposure shows increases, decreases, or no changes, when compared to the 1994 analysis base line.

Collation of the results showing number of persons exposed and level

Due to the known increased health risks to the cardio-vascular system of people as a result of noise levels above 65&nbspdB(A), the situation in Lübeck is as shown below.

Collation of the results for people at health risk and those with sleep disturbance

Improvements were made to the target scenario on noise abatement lines; in this way, further reduction of 12 % could be achieved in the number of persons at health risk, compared with the figure in the original target scenario, bringing the total reduction when compared to the 1994 analysis to 30 %.

In the expert study there are detailed descriptions of the effects of the various scenarios on local points of main emphasis. Two examples which could represent many other proposed solutions will clarify this process:

The figure above shows the comparison between the various scenarios in traffic development planning in Lübeck for the whole city, revealing quite clearly that the two scenarios of road and current trends lead to a deterioration in the noise exposure situation in nearly all respects. When compared with the point of departure in the 1994 analysis, the three scenarios of environmental, environmental plus bus and target scenarios all predict improvements of the situation in all aspects. The improvements are particularly striking for the number of persons at health risk.

These last 3 mentioned scenarios are virtually equally good, but the target scenario promises slight advantages compared with the environmental or environmental plus bus scenarios.

Conclusions and outlook

There was a fortunate constellation in the City of Lübeck in that noise abatement planning and traffic development planning could be approached simultaneously - but it was also fortunate that traffic planners and 'noise abaters' collaborated in planning. This proved to be both conducive to meeting targets and also saved costs.

In particular the results of the surveys of people affected by noise were significantly useful and persuasive in their incorporation into the traffic development planning scenarios.

In Autumn 1998 work is in progress to refine the target scenario in traffic development planning with regards to noise abatement. Thus there is reason to be optimistic that the traffic and transport development plan combined with noise abatement planning will be accepted by Lübeck City Parliament in 1999 and can be implemented by the year 2010 in the interests of improved environmental quality of life.

Source of Information

Beate Hoffmann: Linking noise abatement planning and traffic planning; in: EA.UE: Noise abatement in European towns and cities - Strategies, concepts and approaches for local noise policy; Berlin 1999

Contact:

Cities:

Lübeck :

The Hansa City of Lübeck, with a population of just about 220,000 inhabitants, is the second largest city in the German Federal state of Schleswig-Holstein. The port is located on the bay of the same name in the north of Germany. After the construction of the Nord-Ostsee-Kanal (North Sea to Baltic Canal which was opened in 1895) the city lost some of its former trading functions to the cities of Hamburg and Bremen. In order to maintain its commercial power, it was necessary to attract and settle new industries. Nowadays the city derives its living from amongst other things, ship building, wood- processing, textiles industry, mechanical engineering, as well as producing the well-known marzipan which is called after the city. Tourism also plays a significant part. Since the opening of the inner- German border in 1989 it has become a focal point for approx. 600,000 people, compared to 350,000 when Germany was divided.

Population:

Project was added at 12.03.1999
Project was changed at 12.03.1999

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