Noise in Our Environ­ ment

his issue of EPA Journal Treviews the battle against noise-a pollutant that most of us are exposed to at home, at work, at play, and on the streets. Administrator Costle notes that noise control is critical and that ways can be found to keep abatement costs within reason. An article by Deputy Assistant Secretary Hales of the Department of Interior points out that modern noise is an intrusion that can detract from our enjoyment of national parks. Legislat ive aspects of noise control are outlined by Senator John Culver and Representative James Florio. A former Surgeon General describes the adverse impact noise can have on health. Other articles review the role noise plays in our cities, neighborhoods, and at work. Some of the ways we can deal with the problem of too much noise are described in articles about volunteer organizations, product regulation, and public information. A look at the impact of hearing loss on personal life and conflicting views on the need for sirens also are included. International steps to control noise and EPA's cooperation with Ger­ many on environmental matters round out the issue. D United States Office of Volume 5 Environmental Protection Public Awareness (A-107) Number 9 Agency Washington DC 20460 October 1 979 &EPA JOURNAL

Douglas M . Costle, Administrator Joan Martin Nicholson, Director, Office of Public Awareness Charles D . Pierce, Editor Truman Temple, Associate Editor John Heritage, Chris Perham, Assistant Editors

Articles EPA is charged by Congress to A Balanced Approach Urban Noise Fighting protect the Nation's land, air and to Noise Control 2 and Neighborhood Noise Pollution water systems. Under a mandate Organizations 12 Around t he World 20 of national environmental laws Administrator Costle discusses the need for a quiet environment. focused on air and water quali­ A look at the ways some city What other countries are doing dwellers are dealing with noise aboul their noise problems. solid waste management and ty, Quiet: problems in their communities. the control of toxic substances, A National Resource 4 Do We Need New pesticides, noise and radiation, An assessment of the importance Quiet Comes To Product Noise the Agency strives to formulate Evansville 14 Regulations7 22 and implement actions which of natural sounds and their value as an integral part of our parks lead to a compatible balance be­ The story of a former Hell's Angel A review of the possible benefits and historical monuments. tween human activities and the who enforces a noise control of controlling noise at the source. ordinance in an Indiana town. af)ility of natural systems to sup­ Opportunities port and nurture life. Noise Control in the Quiet Noise in Through Communities Act 6 Our Cities 15 Education 23 Senator John Culver describes The President of the National A local official describes the the noise control tools this law League of Cities discusses the ways that public involvement provides. role of noise-and quiet-in the can help bring about quiet. Nation's urban centers. Aircraft Noise: Volunteers An Abatement Curbing Construction Against N oise 24 Noise 17 Priority 7 Efforts of private citizens to Representative James Florio A view from the construction improve the response to noise reviews the need to continue the industry of how America can problems. fight against this environmental continue to grow more quietly. insult. Sirens 26 Noise in the A review of the pros and cons Noise: Workplace 18 of the w arning signals used by The Invisible High levels of sound can jeop­ emergency vehicles. firefighters, Pollutant 8 ardize the health and safety of and police. An interview with Charles Elkins, workers-a review from the EPA Deputy Administrator for labor standpoint . Cooperating with Noise Abatement and Control. Germany on the Front cover This illustration. based The Sound of on Grant Wood's famous painting Environment 28 "American Gothic." shows many of Health and Noise 10 Silence 19 EPA and its German counterpart the sources that add noise to daily Luther Terry, former Surgeon What happens after the noise share the results of research and life. It was done for EPA Journal by General, details some lesser­ stops? A look at some social and new technology in an effort to Nathan Davies of the E. James psychological implications of White Design Company. known hazards of exposure to solve environmental problems. high levels of sound. hearing loss. Opposite This illustration from the National Archives was a working model for a series of security posters during World War II . Almanac 27 Around the Nation 30 People 36 Design Credits: Robert Flanagan. News Briefs 29 Update 34 Donna Kazaniwsky and Ron Farrah.

Photo credits Cornelius Keyes: The EPA Journal is published Views expressed by authors do not copy. domeshc, S15 00 if mailed to Bruce Davidson'Magnum. Dan monthly, with combined issues necessarily reflect EPA policy Con a foreign address No charge to McCoy: Erik Calonius: Jonathan July August and November-Decem­ tnbut1ons and inquiries should be employees Send check or money Scott Arms/US DI. National Park ber. by the U S Environmental addressed to the Editor (A-107). order to Superintendent of Docu Service. Bill Stanton/Magnum. Protection Agency Use of funds for Waterside Mall. 401 M St . SW ments. U S Government Printing Yoichi Okamoto: Henri Cartier printing this periodical has been Washington. D C 20460 No per Office. Washington. DC 20402 Bresson/Magnum. Nationai approved by the Director of the m1ss1on necessary to reproduce Archives and Records Service. Office of Management and Budget contents except copyrighted photos Text printed on recycled paper and other materials. Subscription • Documerica $12 00 a year. $1 20 for single recent poll conducted by the U.S. more, w hen the primates are withdrawn A Bureau of the Census showed that from the noisy environment, their high A Balanced noise is considered to be the most undesir­ blood pressure persists. able neighborhood condition-more irritat­ This suggests the possibility of some­ Approach to ing than crime and deteriorating housing. thing quite startling. That is, not only might The poll also pointed out that the propor­ our noisy living and working environments Noise Control tion of Americans who feel this way has be giving us high blood pressure. but those been increasing yearly. This information occasional vacations we take to the country underscores the need for regulations and may not be giving us much of a respite from programs to abate noise pollution in our the ravages of noise. Since high blood pres­ society. sure (hypertension) is a serious risk factor Early in 1978, the U.S. Senate held over­ for heart disease and stroke and these two sight hearings to determine what amend­ causes account for 48 percent of the deaths ments to the Noise Control Act of 1972 in this country each year, the public health were needed to respond to the growing Implications of this study could be very national constituency against noise. Two serious indeed. things surfaced as being necessary: addi­ These significant findings correlate well tional research into the non-auditory hea Ith with 40 epidemiological studies in 11 coun­ effects of noise, and stronger State and tries. which link noise exposure with cardi­ local programs equipped to administer ovascular disease. These findings highlight noise administration and enforcement. Out the need for noise abatement and for con­ of these hearings, the Congress drafted a tinued research. During the next two years. set of amendments which became known EPA will continue its research into the collectively as the Quiet Communities Act physiological effects with emphasis placed of 1978. on cardiovascular effects, sleep, and I am pleased that, following the enact­ reproduction. ment of the Noise Control Act of 1972, The Quiet Communities Act gives us the research has made significant inroads to­ opportunity to carry out noise abatement By Doug I M. Costl ward an understanding of the effects of that is needed so critically. EPA's noise noise. What is too much noise? Research abatement initiatives have been and will EPA Administrator enables us to answer the question in terms be part of a well-balanced program that of volume, duration, and character of the emphasizes both national standard-setting noise. Research thus provides a basis for and State and local programs. Noise is regulations that give numerical noise limits. viewed primarily as a local problem requir­ The answer to this question forms the ing local solutions. It is our intention to use health and welfare justification for local the resources provided by the Quiet Com­ noise control ordinances and Federal munities Act to foster the development of product regulation. State and local noise programs throughout There has never been any doubt that ex­ the Nation. By so doing, we are using cessive noise can cause severe hearing Federal dollars to initiate self-sustaining impairment. Studies of the auditory effects local programs that can work on their own of noise abound. There also is no doubt that to control noise in the future. we live in a world filled with potentially Principal features of EPA's State and harmful levels of noise. Our jobs. our enter­ local program initiatives are public educa­ tainment and recreation, and our neighbor­ tion and information. EPA communicates hoods and homes all expose us to excessive with localities, providing information on levels of noise. It is estimated that 20 mil­ the health effects of noise and the need for lion or more Americans are exposed daily Federal product regulation. It also provides to noise that ls permanently damaging to assistance to communities interested in their hearing. EPA's research has already adopting and maintaining noise control established the limits of noise volume and programs. When the information and edu­ duration above which exposure will result cation programs take hold in the local com­ in hearing damage. munities, EPA may follow-up with technical Recently, however, EPA's investigation and financia 1 assistance. of the health and physiological effects of Those of us in government must always noise has extended beyond the solely audi­ be aware of the needs, costs, and benefits tory effects. We are currently in the second of regulatory programs. The Agency's re­ year of a four-year study which is examin­ search program has amply demonstrated ing the non-auditory effect of noise on that the need for noise abatement is critical. primates. The results to date give us some­ EPA's reliance on State and local program thing to worry about. When exposed to initiatives should help keep the costs of noise levels similar to those experienced abatement activities down. The benefits by millions of Americans in urban areas, will speak for themselves in a quiet and the laboratory animals experience a 30 per­ healthy environment. O cent elevation in blood pressure. Further-

2 EPA JOURNAL

1't I

artificially impounded more water, pro­ In the Act of Congress which created the Quiet: duced more written material, and generated National Park System, and in subsequent more trash than all of our forebears had up legislation, some of which applies only to until that time. the National Park Service, and some of A National A perhaps overlooked result of the which is of broader scope, Congress and changes this century has seen is our geo­ Administrations of both major political Resource metrically expanded ability to make noise parties have made it clear that the Park and, more significantly, our increased Service has the responsibility and authority ability to spread that noise into places to regulate sources of noise within Nationa I By David . H le where the sounds of man were rarely, if Parks. It also has responsibility to influence ever, heard before. other Agencies with authority to control s I was growing up, in what was, for This is not, of course, in and of itself, noise emanating outside of park boundaries A Texas, a large city, I do not recall pernicious. Few of us would prefer walking but impacting resources within them. being bombarded by the noises of civiliza­ from New York to San Francisco to occa­ The exercise of these duties in a reason­ tion. I do recall, however, because I was sionally hearing the sound of an airplane. able and responsible way is a complex task, fortunate enough to spend at least part of As President Carter said, in his 1979 En­ for the production of noise is almost always my summers away from the city, a sense vironmental Message, "A certain level of associated with someone's convenience, of joy and wonderment at the natural urban noise is tolerable or even agreeable, and quite often, particularly when the noise sounds which seemed to penetrate pleas­ reflecting the multitude of activities that emanates from outside a park, with some­ antly through more rural surroundings. make a city thrive." one's livelihood .. While I doubt if I could have articulated The increasing pervasiveness of noise is, Since one of the basic purposes of having then the value of the absence of man-made however, one of the reasons that many parks is for people's enjoyment, some sound, there is no doubt in my mind now Americans place increasing importance on allowances for convenience should be that it was this very absence which en­ escaping to places where quiet and soli­ made if it appreciably increases the riched-in fact, made possible-some of tude still exist. One of the major responsi­ individual's enjoyment of the resource my more treasured memories. bilities of the National Park Service is to without harming it. Alrowances cannot be Much has been written of the changes ensure that such places continue to exist. made, however, if the convenience of brought about by the technology of the Each year we host some 300 million visits some significantly impairs the enjoyment Twentieth Century. Since the beginning of by people who want to be refreshed and of others, or if the very resource which one this century, we have consumed more renewed by the historic and natural re­ seeks to enjoy is harmed or endangered. energy, expended more military firepower, sources Congress has protected by inclu­ In addition, we have the responsibility to sion in the National Park System. Quiet is maintain a few places where convenience one of those resources which deserves is not a consideration and where people David Hales is Deputy Assistant Secretary protection. can address nature face to face, without for Fish and Wildlife and Parks in the mechanized buffers. Department of the Interior. Atthough these types of situations (where the convenience of the visitor must be

4 EPA JOURNAL weighed against the impact of the noise ment in 1974, the Service recommended and serves some 13 million people each which accompanies the convenience) are denial for the runway extension and jet year. Because of past problems with noise complex, in these instances we can be service to Jackson Hole Airport, and complaints from suburban residents of guided by ample precedent; a history of instead advocated the development of a Virginia and Maryland, air traffic from decisions that have become accepted by comprehensive regional transportation National is largely routed over the rivers the American people and by Congress as plan that would meet valid transportation just north and south of the ai.rport. the standard which is expected from the needs without unacceptable impacts on This means that many of the Capital's National PaFk Service. Grand Teton National Park and nearby most significant and heavily visited In several instances. however. the con­ Yellowstone. memorials and parklands are located flict between noise and park values is even Since 1974, the question not only of either directly under. or immediately more complex. Occasionally, the activities whether or not to expand the' airport, but adjacent to, National Airport's approac!i that produce noise which impacts directly also whether it should continue at all within and departure paths. These areas include and adversely on park resources have no park boundaries has been fully debated and Arlington Memorial Cemetery and the lwo relationship to the enjoyment of park re­ discussed by government agencies at the Jima Memorial, and Park Service-operated sources, yet are important to the communi­ local, State, and Federal levels, and by areas such as the Washington Monument. ties which are adjacent to the resource. concerned interest groups. the Memorials to Lincoln, Jefferson, and Since it is not particularly useful to gen­ The impact of airport-associated noise Theodore Roosevelt, and a number of eralize about such conflicts, let me take has been studied by the Environmental historic sites and recreational areas. Be­ two examples to illustrate the problems and Protection Agency and the National Park cause of this proximity, aircraft noise our approach to resolving them. Service. What we found was that were it effectively disrupts an otherwise moving Grand Teton National Park in northwest not for airplane noise, the quiet in some experience for millions of park visitors Wyoming, established in 1929 and ex­ sections of the park would be so profound each year. panded in 1950, encompasses some 500 that scientists could not register the sound Many of the memorials offer interpretive square miles of breathtaking mountains that levels. What this meant was that the nat­ programs presented by National Park rise abruptly from the floor of Jackson Hole ural sounds of the Tetons, the murmuring Service guides instead of signs. Park per­ Valley. of streams, bird calls, even the sounds of sonnel at the Jefferson and Lincoln Memo­ The stark rocky peaks were formed by a snow falling from the trees, could be heard. rials must contend with repeated noise combination of fire and ice-volcanic ac­ The experiencing of these sounds is as interruptions during their talks. Some tion Caused land to rise and fall along the integral to the full enjoyment of the guides have developed a speak, pause Teton Fault, then glaciers roamed the Tetons as is an unobstructed view of the pattern to accommodate the jets. Other valley!l shaping the present canyons. The park itself. In a setting such as the Grand guides on Theodore Roosevelt Island have ice sheets cleared soil from areas that now Tetons, where visitors actively seek quiet, resorted to using megaphones to get their are dominated by sagebrush and deposited the sound of airplanes: particularly jet air­ message across. In addition, the intensified it in moraines that support pine, Engelmann planes, passes fr.om being an annoyance effect of the aircraft noise on the hearing of spruce, and alpine fir. The Park is home to into a major intrusion. park employees, because of the acoustica I bighorn sheep, bear, deer, moose, and in We also analyzed the relationship of the properties of those structures, is a matter fall welcomes a massive migration of elk to airport to the purposes of the National of some concern to Park officia Is. feeding grounds in Jackson Hole. Park and found that only 1 percent of the The intrusion of aircraft noise is espe­ Jackson Hole Airport, located within the people who visit the park each year use cially harsh at some of the historical loca­ boundaries of the Park. evolved from an the airport. tions. At Arlington House in the heart of unpaved landing strip in the 1930's, as over In light of these facts, Interior Secretary Arlington Cemetery, tour guides attempt to the years a runway and terminal facilities Cecil D. Andrus, in August of this year, 'recreate the mood of the home when Gen­ were built on land leased from Federal, announced his refusa I to approve any run­ eral Robert E. Lee lived there. as jets roar State, and private interests. When the land way extension, and called for the imple­ by outside. Turkey Run Farm is a working passed into the National Park System in .mentation of a noise abatement plan for replica of the farms that fed the residents of 1950 the airport remained and became the airport activities. The Secretary also indi­ the Nation's Capital in the 18th Century. only airport inside a National Park, through cated his belief that the special use permit All the accoutrements are authentic except a continuing lease arrangement with the for the airport should not be renewed when the noise from above. Park Service. In 1963, and again in 1967, it expires in 1995, and urged that efforts to In the past years, the Park Service has the Federal Aviation Administration sug­ relocate the airport be begun immediately. sponsored concerts, plays, and musica Is at gested extending the airport runway to In announcing his decision, Andrus said: various places in and around the District accommodate larger propeller-driven "With this much advance notice, I am of Columbia. The Watergate Concerts, planes, then jets. The National Park Service confident that the people of Jackson, work­ which were held near the famous apart­ began studies of runway capacity in 19 65, ing with local, State, and Federal assist­ ment complex starting in the '60's had to and in 1971, Congress appropriated $2 ance, can locate and develop a new airport be stopped because of the noise. Sym­ million to study and implement improve­ site or other means to satisfy the transpor­ phony concerts at the lwo Jima Memorial ments to Jackson Hole Airport. The Service tation needs of the area. This decision were cancelled when the Navy Band re­ issued a draft environmental impact state­ reflects our concern that the pristine setting fused to continue playing in competition ment in 1973 on major airport improve­ of this beautiful national park should not with the aircraft. Additionally, many pos­ ments including a wider, longer, and indefinitely be degraded by unnecessary sible visitor activities, such as readings stronger runway, runway lighting systems, noise and disturbance." and presentations, are automatically ruled an air traffic control tower, and a sewage In another. even more complex, situation, out for the Capita I area because of the treatment system. Most of these improve­ we are concerned about the impact of noise interference. ments were approved by reviewing agen­ noise associated with the operatio1 ,s of Vacationing visitors are subjected to cies and are now complete, with the Washington National Airport in Arlington, such extrem.~s of sound at the bas.~ of the exception of runway changes. Va., on Park Service areas in and around Continued on page 33 In our final Environmental Impact State- the Nation's Capital. National Airport is located just across !he Potomac River from Washington, D.C.,

OCTOBER 1979 5 Opportunities in the Quiet Communities Act

By Senator John C. Culver (D- lowa)

emphasized the need for effective noise ini:iton. D.C .. the National league of education and abatement programs on a Cities, the National Association of Coun­ local level. ties. numerous State and local noise and Elaine Szymoniak, a member of the health officials, former Surgeon General Des Moines City Council, for example, Dr. Luther Terry, and others all supported stressed the need for public education and greater public education, research, and said more money should be provided to grant programs for our cities and towns. communities for self-help programs. The Subcommittee on Resource Protec­ Charles Anderson, a professor of tion concluded that few effective programs audiology at the University of Iowa Hospi­ had been initiated at the Federal level to tafs and Clinics, urged that three actions inform the public about the adverse health be taken to inform the pubflc: " ( 1 ) the effects of noise, and to properly integrate development of Federal grant programs local needs into any control strategies. supporting innovative research Into the The solution recommended by the sub­ effects of noise on human health and wel­ committee was for EPA to place greater fare, (2) the support of local demonstra­ emphasis on technical assistance to State tion projects on public education, and (3) and local levels, to bei:iin a vigorous noise the broad dissemination to the public of research program. and to strengthen the information about the known effects of regulatory program. noise on human health and welfare." In re!';oonse to these problems. the Larry Crane, executive director of the Quiet Communities Act of 1978, which I Iowa Department of Environmental Qual­ introduced, authorized EPA to develop a In 1972, Congress passed the Noise ity, said he felt that EPA should do more range of programs to help State and local Control Act to reduce excessive noise noise research and should establish "real­ governments combat excessive noise at that jeopardizes the health of our citizens. istic standards which would provide the local level. It allows cor:-:munities to be and gave the Environmental Protection additional guidance to local governments the principa I developers of programs that Agency the authority to develop noise con­ in the kind of options they can imple­ are responsive to their own special needs, trol methods. In the years that followed, ment." He, too, supported a grant program desires, and capabilities. In addition. it unfortunately, we found that the law did that would be responsive to local needs. not only encourages communities to assist not do enough to help communities to Finally, Ed Ryan, area director for the one another but also encourages them to resolve their unique problems. National Retired Teachers Association/ solicit the cooperation of volunteers and The need to create community-level American Association of Retired Persons senior citizens. The Act also provides direct noise programs was brought to the atten­ Title X program, explained the special assistance from EPA in the form of grants, tion of Congress when the Senate Re­ requirements of our senior citizens for training programs, seminars, and a clear­ source Protection Subcommittee, which I effective noise control programs. He indi­ inghouse on noise information. chair, held oversight hearings on the Noise cated that the elderly represent an out­ I have been very impressed with several Control Act in March and April of 1978. standing resource to help implement com­ innovative programs of EPA's Office of This was the first comprehensive set of munity noise education and control Noise Abatement Control. hearings by the Senate on the Noise programs. First, the Quiet Communities Program Control Act since Its enactment, and this I was impressed with Iowa's response was established in 1977 as a pilot project examination was revealing. to the noise problem. Many Iowa cities, to demonstrate the best available tech­ One finding was that the 1972 Act had, like cities in other States, have adopted niques for local noise control. The first in fact, simply not reduced environmental or are moving toward noise control ordi­ Quiet Community, Allentown, Pa., received noise. Indeed, the subcommittee dis­ nances. Effective programs are already in an EPA grant in September of that year. The covered that, despite the efforts of EPA. operation in Des Moines, Council Bluffs. Quiet Communities program was made a noise and its adverse health effects were Dubuque, Sioux City, Davenport, and other nationwide, permanent effort with enact­ increasing on the whole nationwide. mid-sized cities. It has been especially ment of the Quiet Communities Act of I took the March, 1978, hearings to Des gratifying that Iowa realizes that noise is a 1978. Moines, Iowa, in order to learn more about pervasive problem which is not confined This pilot program, emphasizing com­ problems of cities in dealing with exces­ solely to industrial States, and that pro­ munity involvement in defining the major sive noise. One witness after another grams must be directed at specific noise control problems and finding solu­ regional and local needs. C 1t•lrf1UP• I •11 • 1f1t At the April, 1978, hearings in Wash-

6 EPA JOURNAL Aircraft Noise: An Abatement Priority

By Representative James J. Florio (D-N.J.)

and control its effect on our lives. As Chair­ Specifically, I am referring to the avia­ man of the Subcommittee on Transporta­ tion noise abatement bills now under con­ tion and Commerce of the House Interstate sideration by the Congress. If these legis­ and Foreign Commerce Committee, I have lative attempts are successful. the Federal closely examined the problems and avail­ authority to control aircraft noise will be able means to decrease noise pollution in seriously eroded. These bills would ( 1) ex­ our environment. Testimony before the empt a substantial portlon of commercial Subcommittee has persuaded me that pro­ aircraft from compliance with estahlished longed exposure to noise adversely affects noise abatement deadlines; (2) discourage human health. The frequent interruption of production of quieter aircraft, and (3) sev­ sleep, high blood pressure, and emotional erely undercut both the FAA and the EPA 's disorders can be exacerbated by the un­ authority to implement noise abatement relenting bombardment of noise. measures. Similarly, high levels of environmental These bills represent a flagrant disregard noise are often linked with the economic by their supporters for the health and wel­ decline of neighborhoods. In testimony be­ fare of our communities. Further, I view fore the subcommittee, witnesses ex­ these legislative proposa Is as testimony to plained that the fisca I well-being of com­ the unwillingness of the air carrier industry munities located near significant noise to comply with long-standing regulations sources is threatened by the subsequent intended to provide long-awaited relief exodus of homeowners and shopkeepers promised to communities plagued by seeking quieter surroundings. Though the aircraft noise. uiet is an essential element in the causal relationship of noise to ill health and Qquality of our lives. Our citizens are urban economic decline requires further Communities Take Action increasingly conscious of the impact of investigation, we can agree that noise ls On the basis of testimony, correspondence, noise and are no longer willing to dismiss certainly not an asset. and useful information discussions with it as an annoyance that must be tolerated. In the interest of decreasing environmen­ local officials and citizens, it is clear that However, combatting the increasing on­ tal noise, preserving the public health and the callous dismemberment of existing slaught of noise is a frustrating undertaking welfare, and observing public budgetary noise abatement laws and regulations will for even the most highly motivated constraints, I am convinced that we must not be quietly accepted. In lieu of Federal communities. more narrowly focus our noise abatement authority, local officials have indicated their Unfortunately, each level of government effort in order to be effective. It is critical willingness to bring noise control matters has unwittingly contributed to this frustra­ that we channel our resources toward re­ before city councils and county chambers. tion. Though Federal noise abatement and ducing those sources of noise that have the In the face of possible revocation of exist­ control activities were concentrated in the greatest impact on the greatest portion of ing Federal aviation noise abatement au­ Environmental Protection Agency In 1972 our population. Without doubt. the most thority, communities have already begun to with the passage of the Noise Control Act, widespread and universally experienced pass their own ordinances to control the the enforcement of noise standards and noise problem is aircraft noise. I strongfy use of local airports by noisy aircraft. Pre­ regulations is largely a State and loca I mat­ urge that combatting aircraft noise be our cisely this sort of action was taken in June ter. This local emphasis was embodied in Nation's number one noise abatement of this year by the members of the Los the Quiet Communities Act Amendments of priority. Angeles City Council. 1978. However, with ever-increasing bud­ Similar action by other communities getary constraints, local noise abatement Aircraft Noise: The Target of near the major airports of our Nation cou Id and control programs often suffer a low Special Interests severely disrupt interstate commercial priority. Even at the Federal level, the EPA, The 1970's have been called the decade of aviation. However, in lieu of Federal au­ charged with leadership responsibility, environmental legislation. Unfortunately, thority, local governments cannot be pre­ allots a modest one percent of its tota I we are beginning to experience an all-out vented from adopting their own means for budget for noise control activities. effort on the part of special interests to dis­ resolving the aircraft noise issue. The sup­ It is time for us to recognize the impact mantle the intent of these laws. The Federal porters of legislation that effectively guar­ of noise on the public health and welfare authority for reducing aircraft noise is no antees the continuation of aircraft noise and to be resolved in our attempt to reduce exception. It, too, has been the target of L ' 11 • such dismantling.

OCTOBER 1979 7 Noise: noise. If these studies continue the trend of previous studies, The Invisible noise control may develop into one of EP A 's major health pro­ Pollutant No, in fact this is not the case. tection programs. I have a very hard time convinc­ People who think they can get Interview with ing people that noise pollution used to noise are deceiving n is important. In my other assign­ themselves. If a child comes up Charles Elkins, Deputy vith noi ments in EPA, I've had the task behind you and shoots off a cap eopl Ii Administrator for of presenting issues and poli­ gun, you might stay in your seat hat in som instances we Noise Abatement cies related to virtually all of and appear to be calm and un­ andContf'.o/ EPA's programs, but noise is disturbed. But you cannot con­ much harder to present. I find trol your heart rate and adrena­ Yes. We see this in our chil­ it easier to convince people of lin secretion and other internal dren's love for really noisy toys. the hazards of some chemical reactions. These will increase. such as the ubiquitous " Big which they have never heard of and your body will react be­ Wheel." Region 5's Noise Pro­ than about noise, even though cause of your instinctive fear gram Chief, Horst Witschonke. I often have a stronger health response. We can consciously came up with an excellent ob­ case. We all seem to have an control many of our reactions to servation on this point. He was instinctive fear and respect of noise, but some of the body's awakened at 2 a.m . one night by the unknown and, in contrast, a systems are not controlled by a motorcycle going by. Instead cavalier disinterest about those our consciousness. I am con­ of counting sheep he lay there risks which we think we under­ fident this kind of bodily re­ calculating how many people stand. I know. I used to have sponse to noise will be recog­ this one motorcyclist could these very same views about nized more in the future. as wake up or disturb in one hour, noise until I took a closer look stress-related physiological driving at a normal speed and realized how people's un­ studies are completed. Perhaps through the streets of Chicago. conscious attitudes were getting then we will recognize that we He estimated it would affect in the way of their understand­ must take steps to protect our­ something like fifteen or twenty ing of the hazards of noise. selves from an overdose of thousand people. Noise is something we grow up noise, and we will begin to with, and it is very difficult to feel frustrated, as many citizens H..> • H II I uke to bring believe that such a common already do. because in our noise down to an ace ptoblc pollutant could be doing any­ society it is so difficult to escape thing serious to our heafth or from noise. Unfortunately under current environment. programs I don't see a time I v t nol rn y when an acceptable level will be contribute to cardiovosculor ii go mandat to reached. Take traffic noise for di o Hns thi b n prov n prot ct public he Ith. Where instance: if there were no Fed­ do snots os a pollutant fit { eral regulations, the number of into tho health picture 7 I The evidence is not all in yet but people exposed to traffic noise h ring lo s th princlp I 40 epidemiological studies con­ would double by the year 2000, I f ducted in Europe show a link as compared to when the Act Hearing loss is one of the best between noise and cardiovas­ was passed in 1972. With a understood harmful impacts of cular disease. In addition, EPA very ambitious Federal regula­ noise. Loss of hearing occurs at and the National Institutes of tory program by the year 2000 noise levels which most people Health (NIH) are now conduct­ we might be successful in hold­ would believe are completely ing a study of rhesus monkeys ing down the noise exposure to harmless. With the limited to determine the reactions of . the same number of people monitoring we have done. we their cardiovascular systems to affected in 1972. But this as­ find that even some housewives noise. We find that when ex­ sumes that the products will not are being exposed to noise on a posed to levels of noise which degrade and that no one will 24-hour basis that could be many Americans receive day in modify or tamper with them. hazardous to their hearing. This and day out, these monkeys We all know, however, that puts into perspective the risk of develop high blood pressure. people seem to enjoy modifying hearing loss to factory workers After the noise was shut off this cars and motorcycles, so the and other people subjected to high blood pressure continued. outlook is not encouraging. high noise levels. Unfortunate­ These studies suggest that ly, once a person loses hear- noise may be a contributing 1rp1ane no1 ca • ing from over-exposure to noise, cause of cardiovascular dis­ I) I I a hearing aid will usually not ease.Thirty-eight percent of the Aviation noise seems to aggra­ help. people in this country die from vate people more than any other cardiovascular disease, another source of noise even though it ten percent die from stroke. affects a sma lier number of Hypertension (high blood pres­ people than traffic noise. One sure) is a major cause of these reason is that airplane noise diseases. In the next few intrudes into peoples' homes­ months, we expect to expand their refuge from the world- our research on the link between cardiovascular effects and

8 EPA JOURNAL and for many there is no escape local programs. In the time since formed local communities about unless further steps are taken. becausetheycannotaffordto the criticism was originally what other communities have Noise is no different from all the move. The regulatory authority voiced regarding the regula­ done. For instance. in Mont­ other pollutants that EPA con­ for controlling aviation noise tions. we have proposed a num­ gomery County, Md .. school trols. If we want to make the lies with the Federal Aviation ber of additional regulations dances are controlled below year 2000 clean or quiet. steps Administration. Recently they and we expect to promul- certain decibel levels and in a must be taken now to change have put out some regulations gate them very shortly. The few communities signs are the design of products and fac­ that will result in a substantial question of State and local posted outside discos to warn tories. since long lead-times are reduction in the number of peo­ programs is more difficult people of possible harm to their involved. With the present Fed­ ple exposed to aviation noise by because the 1972 act did not hearing. Rock music perform­ eral effort in noise we are not 1985. That's the good news. give us any real responsibility ances could be handled in the able to promise that the year The bad news is that immedi­ to deal with States and local­ same manner. 2000 will really be any quieter ately thereafter the number of ities. That has been corrected than the year 1972, the year the people exposed will begin to and we feel that the perform­ Oo :ve huvc any indic tions Congress directed EPA to rise again because of the ex­ ance that Congress will now see hat indu tri s nnd manu· launch an attack on this pected increase in air traffic. under the Quiet Communities acturers arc int rest d In pollutant. Act will be responsive to their coop rating with th labeHng I th r ny hlng I t p rm criticism . program 1 Are thcr some th t . n do to minimize nols ln will volunt rily I b I their ) 0 t . If EPA is vigorous in its Imple­ There certainly is. In fact, pre­ Yes. Some manufacturers rec­ mentation of the Quiet Commu­ vention is a lot cheaper than ognize that they can build nity Act. we may be able to hold trying to abate the noise after it II quieter products and that this the line on noise exposure. Of is already there. Homes can be At the present time, large trucks, could be an excellent selling course, without a Federal pro­ insulated and designed to shut rail cars and locomotives, and point, particularly for some gram, the situation would be out noise, if we know they are air compressors are regulated. consumer products. Consumers much worse. going to be exposed to a high Shortly we will promulgate final must let the manufacturers noi.se level. Land bordering a regulations on garbage trucks, know that quieter products are Where do you o th noi noisy industrial site can be put buses, motorcycles, and other more desirable. progr Ill going i n th ne t fi to compatible use instead of railroad equipment. In addition. We are working now with v :Jr being residential. Highways, of we are initiating a labeling pro­ several industry groups on the We see a tremendous enthu­ course, can be routed away gram to help consumers make development of voluntary label­ siasm for noise control at the from residential areas. There informed choices about the ing programs. The offer which State and local level. In fact. a can be spacing between the products they buy. This is im­ the Agency has held out to them recent Gallup poll showed that highway and the homes them­ portant because consumers can is that if they develop a volun­ next to water pollution, noise selves and barriers can be control the amount of noise pol­ tary program that meets our was mentioned more often as a erected. It's easier and more lution to which they are ex­ criteria, then EPA will postpone serious pollution problem than cost-effective to erect a barrier posed more so than in the other imposing a Federal labeling re­ any other. The number of local along the highway or at the edge pollution areas. Noise is such a quirement on their product until noise ordinances has sky­ of a community at the time the pervasive pollutant, per.haps the their program has a chance to rocketed in the last several original highway or community most pervasive that this Agency prove itself. years. Therefore. we predict a is being built. If we install bar­ deals with, that it would be im­ very rapid growth in State and riers after the fact, as Virginia is possible for us to protect people local programs to control noise. now doing around the beltway from all serious exposures. I began my career in the Fed­ in Washington, D.C., we find Individuals must help protect eral Government working on air it's very difficult to buy the themselves. pollution. Back in the 60's air proper land and to place the bar­ The neighborhoods around pollution was viewed primarily riers where they can be most rv 11 • ounct po.:opl co1 , many airports will get signifi­ as an irritant which made peo­ effective. Prevention is real ly ploinin about disco noise cantly quieter by 1985. Un­ ple's eyes water in Los Ange!es, the best answer to noise prob­ Do omc fe I that th F d r fortunately, the noise will start and few people recognized air lems for the future. Govcrnm nt .houlris yyou back up at a fairly rapid rate pollution's more serious heath c n' t go o tisco bee u tht effects. The air pollution pro­ nols istoohhh nditwill gram and the public's under­ d m ge your hear n 1 v •n standing of the problem have though discoing i. n indivld grown tremendously. The noise I I h . control program is still at the Yes. but there really is a limit to "Los Angeles" irritant stage in what the Federa l Government terms of public awareness. The The Congress has been critical can and should do with regard Noise Program is lucky to be Jn really on two points. One is the to many noises including disco EPA, which has had the experi­ speed with which we put out noise. EPA can inform people ence of these other growing regulations, and the other is the that their hearing can be dam­ programs. The noise program lack of emphasis on State and aged. But they must decide for can profit from the insights themselves. We have also in- gained. O

This interview was conducted by Chris Perham, A ssistanr Editor, EPA Journal.

OCTOBER 1979 9 ference. A good deal of study has been noise from passing vehicles bombarded -- undertaken to discover what kind of speak­ these animals for nine months. Health ing voice is necessary for an individual to The test showed an immediate rise in be able to carry on an intelligent conversa­ their blood pressure when the noise was and tion with another person from various dis­ turned on . Over a period of time blood tances in the presence of noise. We now pressure was elevated 30 percent, which have a good feel for what happens when percentage was sustained over the nine Noise noise interferes with a person's communi­ month period. But the most interesting re­ cating ability. Adequate communication sult was the fact that their blood pressure By Luther L. T rry, M.D has a bearing on everything including remained at the 30 percent increased level safety and the quality of life. long after the noise was turned off. If one What has not been investigated but cer­ chooses to translate this information to the tainly should be, is whether the decrease in human condition (although at present there hearing sensitivity in response to noise ex­ are no clinic.al studies on people to confirm posure is a protective mechanism of our the hypothesis) it becomes evident that if bodies against a perhaps greater danger­ you as a person are exposed to high noise he realization that noise is a pollutant physiological damage resulting from noise levels and you wish to escape them for a Thas been very slow in coming to the exposure. We know that noise can constrict few days by relaxing and allowing the general public. Yet it is cf ear that we are blood vessels, speed the heart rate, stimu­ effects of the noise to dissipate. you will now fighting the same battle against noise late the outpouring of adrenal cortical hor­ be disappointed because the effects are pollution that we fought 10 to 15 years mones, and elevate the blood cholesterol going to last much longer than the noise. ago over air and water pollution. level. And Dr. Robert Cantrell, Chairman of Although it is a normal physiological re­ As a physician, I am very concerned the Committee on the Medical Aspects of sponse for a person to have elevated blood about this problem because of its insidious Noise. American Academy of Otolaryn­ pressure during periods of stress, under quality. First of all noise is invisible and its gology, feels very strongly that since noise most circumstances the blood pressure impact on our total environment, including enters the body through the ear. the body returns to normal when the stress is re­ people, has proven to be more difficult to may wish to protect itself from greater moved. Continued stress can lead to hyper­ define than that of other environmental damage by sacrificing the sense of hearing, tension and be a contributing cause in pollutants. which is not absolutely necessary for hu­ decreasing life expectancy. Excessive noise Most of the scientific evidence available man survival. in the environment falls into the category of supporting the fact that noise is harmful to In addition. there are other very im­ " continued stress" and actually poses a human beings is in the auditory area. At portant non-auditory effects of excessive safety danger as regards a person's ability the recent Model Symposium on Commu­ noise. A partial list would include cardio­ to hear important warnings in our everyday nity Noise, held last May in Washington, vascular constriction. elevated blood pres­ pattern of life. D.C .. Dr. David Lipscomb reminded us that sure, increased heart rate, more labored Even in the area of recreational activ­ the cochlea in the inner ear is completed in breathing, measureable changes in skin re­ ities, noise is important. A recent survey the developing fetus by the third month of sistance and skeletal muscle tension, done by the Environmental Health Admin­ pregnancy and it is virtually of adult size digestive system changes, glandular activ­ istration of Washington, D.C. measured the and complexity by that time. This would in­ ity altering the chemical content of blood noise level of 18 discos in the District. dicate that the auditory mechanism is de­ and urine, vestibular effect. balance sense Measurements were made at the edge of signed to serve an extremely vital part in a effect, changes in brain chemistry, and so the dance floor. at the d isc jockey station, person's livelihood. forth. and at the bar. On the basis of accepted The insidious character of high level Recent research has a Isa indicated that standards it was found that: ( 1) Fifty per­ exposure is such that it may be weeks, excessive noise exposure during pregnancy cent of the discos constituted an occupa­ months. years, or decades before the total can influence early embryo development. A tiona I hazard to disc fockeys and bartend­ influence and reaction is felt by the person very careful set of studies done at Research ers, and that in three discos, the noise level so exposed. Dr. Lipscomb also brouqht out Triangle Park. N .C .• attributed this fact to was such that the exposure time for the disc the fact that we don't have "earlids." We overproduction of corticosteroids, which iockey should be limited to one hour or can't effectively close off our ears from the induces congenital defects, and so we are less, and (2) if occupational limits are sound around us. Therefore. it is imperative beginning to see that noise can be a nega­ applied in the case of patrons, then at the that our ears have some quiet time because tive influence to coming generations. There noisier discos, the patrons should not be community noise levels are increasing. Our are correlations also. which still are not well permitted to remain for more than two ears are more susceptible or predisposed to understood, between more noisy environ­ hours. d11mage from hiqh intensity sound because ments and mental disorders. There are numerous reasons for stress­ they are not rested but remain under I am very much interested in a recent ina thP. mied for a quieter environment. continUF~d assault. animal research report presented by Dr. First. the human body is a wondrous device HearinQ is our maior sor:ial and le11rning Ernest Peterson of University of Miami. at which uses a complicated set of counter­ sense. The ear is a maqnifkent microcosm the Model Symposium on Community relevant forces that are kept in balance in of creation. It may be small in size but it is Noise. He has exposed rhesus monkeys order to maintain body he11lth and eauilib­ miqhtv in its impact on the totalitv of hu­ (whose cardiovascular system operates on rium. Any unnecessary influence which man life. I believe that we shoulci eliminate the same general principle as human be­ interferes with the normal body function exposurn to hiqh level sound. which can ings) to a noise exposure sequence resem­ should not be tolerated. destrov the structure and function of this blinq the exposure pattern that an industrial Second, one most important hum11n be<1utifullv enqineered receiver of vital worker in the western world might experi­ need is for a desirable qualitv of life. This outi;ide information. ence on a daily basis. Various forms of is not possible in the case of ha If the citi- There is another auditory effect from ex­ household noise. transportation noise, cessive noise and that is in speech inter- cafeteria noise, work-place noise, air con­ ditioner drone, aircraft fly-overs and

10 EPA JOURNA L zens of this country because of excessive in achieving a more healthy environment. noise in their work, recreational, or home Especially in the areas of secondary health environment. effects, it is a complicated task calling for And, third, "home" should be a place the very best in scientific design and talent. for rest and quiet after the labor and cares of It also calls for informed, creative leader­ each day. Community noise deprives most ship at the governmental and professional people of access to such a retreat. This is an levels as well as cooperation between public unfortunate and unnecessary by-product of and private agencies. This is a challenge to our industrialized society which may in fact the Environmental Protection Agency. We be taking an unrecognized toll on human hope the Agency will be able to demon­ physical and mental health. strate its capacity to offer the leadership We need a great deal more research in needed. the public health and welfare area of noise The Environmental Protection Agency pollution. We need to fill in the voids that can give the leadership, but the final are still left. There is a definite need in this result will depend upon the aroused com­ country for tight prospective studies deal­ munity concern and corrective actions at ing with the problem of noise and cardio­ the local level. We simply cannot continue vascular function in human beings and the to accept the increased noise level without effects of noise on the unborn. We need to appreciation of its destructive effects on know the effects of noise on children and our lives. D infants, especially their susceptibility to hearing loss. There is an enormous need Dr. Terry is former U.S. Surgeon General to understand immunologic mechanisms and President of HEAR Foundation, Inc., a and their relationship to excessive noise. nonprofit organization that works to over­ The Environmental Protection Agency come hearing impairment in children. has the mandated responsibility and au­ thority to pursue the research to gain the knowledge needed for meaningful progress

OCTOBER 1979 1 1 Urban Noise and Neighborhood Organizations By M1lto Kettl r

l_ -- • Ii 5 c caae •a ti i ii I 0 I · ·~ i~~ El!ESlll--~·

om and Janet Ross live in Queens. neighborhood organizations incorporating the city. Noise is therefore a blighting TNew York. For them, New York is a the entire city. influence as well as a health problem. different city every Sunday morning. "It's The one thing that all community organ­ City vitality and noise seem to be prac­ not that there are no people around, but izations have in common is that they are tically synonymous. Yet, excessive noise there is no noise," Tom said. "We can sit controlled by the residents of the commu­ can be harmful to city residents and serves on the porch and have coffee and good nity. People become involved with commu­ to inhibit common patterns of behavior. conversation. You would never be able to nity organizations to help themselves and Moreover, certain types of noise are especi­ do that during the week." their neighbors. By joining together in com­ ally irritating and can have an adverse What Tom and Janet Ross discovered munity organizations, residents concerned effect on people. Noise reduction efforts about their neighborhood is similar to what over the quality of life in their neighbor­ will not lead to a quiet, dormant city. City people around the country are discovering: hoods can have a pronounced impact on noise is an integral element of a vibrant city neighborhoods are a lot more fun when improving their surroundings. lifestyle, and city patterns of commerce they are quieter. While EPA is taking steps Neighborhood organizations represent a and communications need to be preserved on a national level to reduce noise through growing force in American life. They are and enhanced. But neighborhood noise pro­ a combination of regulatory and planning unique because they transcend politics in grams can reduce, control, and/or elimi­ approaches, neighborhood organizations the traditiona I sense. They express the nate those noises which are in actua I ity from Alaska to Florida are finding that they common interests of the average people of serving to retard urban living and the re­ can be successful in reducing noise in their any community, and they are led by highly revitalization of cities. community by working together. The cur­ motivated and deeply concerned people While it is clear that vibrant. developing rent noise control programs of the Federal who are playing leading roles in revitalizing and expanding cities will not be silent, Government will contain and reduce the American cities noise should not reach the point where the escalation of noise, but a major portion of Noise control and city revitalization go sound itself inhibits growth, where jack~ the solution to the problem of noise rests hand in hand. Noise is the unwanted com­ hammers drown out conversation, where with local communities and neighborhood panion of modern technology and urbaniza­ trucks and buses and airplanes drown out organizations. tion. It insults and intrudes into people's all talk, where street noise hinders com­ There are many kinds of community lives, and it comes from a variety of sources merce, and where not even one's home is organizations. Some have paid staff mem­ -street traffic, aircraft, rail yards, con­ immune from eternal blaring noise. bers. Some receive outside funding. Some struction activity, industry, the neighbor's Public concern has begun to find political primarily advocate neighborhood interests. lawnmower, and even barking dogs. Such expression at the local level. The number of Many operate programs such as food noise is not only unwanted-in many cases local ordinances designated to control co-ops, health programs, and other serv­ it is unnecessary. community noise levels has increased from ices. A community organization must serve Noise is a leading cause of neighborhood 275 to over 1,000 in the last six years. a small neighborhood or be a coalition of dissatisfaction among residents in urban These ordinances reflect the increasing areas. Attempts to escape the noise are frustration people feel from noise that is often given as reasons for moving out of significantly disrupting their lives.

12 EPA JOURNAL But it takes more than an ordinance to Councils, which is a coalition of neighbor­ reduce noise in a neighborhood. The hood organizations. Anchorage is a med­ shelves at any City Hall are filled with ium-sized city which has undergone tre­ Memo from President ordinances that have never been enforced. mendous growth in the past few years. Carter to Federal In part. the reason has been because people Along with the growth has come an alarm­ have assumed that city neighborhoods have ing increase in noise levels. After having Department Heads to be noisy. Many are now discovering that worked closely with the city government in this need.not be the case and are conse­ the four-year process of developing a city In my Environmental Message of quently turning to neighborhood organiza­ noise ordinance, the Federation is now August 2, 1979, I recognized that city tions to develop or enforce city noise working toward its enactment. Inasmuch as noise is an integral part of a vibrant statutes. the proposed ordinance would operate on a city lifestyle, reflecting city patterns Allentown. Pa., is a prime example. citizen complaint-responsive basis, the of commerce that must be preserved Allentown was the first city to receive community would play an integral part in and enhanced, but that much urban Federal assistance for a demonstration its implementation. noise is harmful to urban living and program for noise reduction under the In Baltimore, Md .• the Greater Home­ could be abated. "Quiet Communities" program. The Com­ wood Community Corporation has taken on I am initiating a program to munity of Neighborhood Organizations a large and long-range project to reduce reduce urban noise by making exist­ ( CNO l was the driving force that provided noise and congestion from traffic. The or­ ing programs work better through constant and sustaining grass-roots support ganization serves a number of neighbor­ interagency and intergovernmental to obtain and carry out this grant. hoods ranging from wealthy to very poor cooperation. I am directing you, in Jn addition, the organization worked and from single-family homes to large consultation with other Federal closely with the city government in the apartment and commercial buildings. The agencies, to: development of Allentown's noise ordi­ total population of the neighborhoods is nance. Groups from various neighborhoods 44,000. • initiate programs to achieve sound­ worked to ensure that their specific noise The organization has been most active in proofing and weatherization of noise­ problems (motorcycles, nightclubs: indus­ the area of traffic. Residents were con­ sensitive buildings, such as schools try, etc.) were addressed in the ordinance. cerned about the noise, air pollution, and and hospitals; Through its Environmental Issues Commit­ congestion resulting from traffic on arterial • promote the use of quiet-design te1'!, the group was also a leader in the streets that run through the neighborhood. features in the planning, design, and ultimate adoption of an effective ordinance. Greater Homewood was instrumental in operation of proposed urban trans­ On a smaller scale, the Basset Neighbor­ setting up a coalition of organizations in portation projects; hood Association serves a twelve-square neighborhoods affected by arteria I street • encourage noise-sensitive develop­ block area in the central city of Madison, traffic. The coalition. Streets for People, led ments, such as housing, to be located Wis. The area is made up primarily of small two-year fight which resulted in an a away from major noise sources; apartmE'nt buildings, housing mostly stu­ experimental traffic reduction plan. dents and senior citizens. The population of The experimental plan allows 24-hour •help Federal. State, and local agen­ the area is about 2,500. parking in one lane of each four-lane street. cies buy quiet equipment and The Association has been working for the An additional lane is reserved for buses. products; and past two years on a comprehensive neigh­ The lane reduction is intended to divert •support neighborhood self-reliance borhood plan. A major component of the traffic to other routes and to encourage efforts seeking to identify and address plan is a proposal to divert through-traffic people to use public transportation. The local noise problems. away from interior neighborhood streets. plan will be evaluated this year, and the The Federal lnteragency Commit­ Arterial streets would take traffic around coalition will work to make the change tee on Noise, chaired by the Adminis­ the neighborhood and barriers and weight permanent. restrictions would keep traffic within the These are just a few of the examples in trator of the Environmental Protec­ neighborhood to a minimum. The Associa­ which active and concerned residents work­ tion Agency, shall coordinate the implementation of this program. The tion has worked to mobilize support for the ing through neighborhood organizations Chairman of my lnteragency Coordi­ plan among residents. The plan has made have made their community a quieter place it through the city planning review process, to live. The role of EPA in this process is to na~ing Council will assist the Inter­ agency Committee and other inter­ and is now before the City Council. Asso­ encourage the initiative of neighborhood ciation leaders feel that it will be enacted organizations in reducing excessive urban governmental cooperative efforts to assure that this program is carried soon. noise and to provide the technical assist­ out fully and promptly, including In Sarasota, Fla., Project Traffic was ance these organizations need to be organized by a single neighborhood organ­ successful. consultation with State and local ization to dea I with traffic noise problems Few urban residents would enjoy their governments. The Administrator of the Environ­ throughout the city. The Project is presently city if every day were as quiet as an early completing research on the problem. A Sunday morning. But like Tom and Janet mental Protection Agency will report study of Federal, State, and local noise Ross, they would like to sit on their porch to the Chairman of the Council on laws has been done and a draft noise ordi­ and carry on a conversation without the Environmenta I Quality and the Direc­ nance developed. In addition, a consultant sound of a jackhammer or a diesel engine tor of the Office of Management and Budget on the progress of this new has just completed a city-wide traffic plan drowning out their discussion. Neighbor­ program on February 1, 1980, and on that calls for better signaling to improve hood organizations around the country are August 1. 1980. traffic flow on major streets and the restric­ helping to make this happen. 0 tion of through-traffic on other roads. Project Traffic is initiating efforts to have Milton Kottler is the Executive Director of the proposals for traffic noise reductions the National Association of Neighborhoods implemented by the city. and author of Neighborhood Government: In Anchorage. Alaska, citizens have The Local Foundations of Neighboring Life. organized the Federation of Community

OCTOBER 1979 13 Evansville, lnd.-lt's 3 a.m. before the "In the course of three hours, that biker Quiet lone lawman finally gets his man is going to drive 17,400 people bananas. within range. And one of them could be you." He springs from his wooded hiding place Why do people make noise? Comes to and before the outlaw can make a move, Gordon will tell you that, too. he draws and aims. "A lot of kids have nothing else to do. Evansville Zap I Eighty-five decibels at 50 feet. They drive around on a new motorcycle or "Sorry, buddy," drawls deputy sheriff in a $9,000 van and they're saying, 'Look By Nancy Shulin Buster Gordon. "You are gonna hafta get at me.' Associated Pres Writer you a new muffler." "They want to draw attention to them­ So ends another suburban showdown selves, to be different, to be special. That's between Gordon and the enemy-the faulty why they put heel plates on their boots and mufflers, wailing stereos, and buzzsaw why they rev their engines." lawnmowers that keep his neighbors awake Gordon looks down at his own boots anct at night. flashes his engaging grin. "The reason I With his visored helmet, dusty boots. and know so much about it is because I'm police motorcycle, the 45-year-old Evans­ describing myself. You see," he confides, vii le native looks like a California highway "I got heel plates on my shoes, too." patrolman who has taken a wrong turn on That, says one of Gordon's advocates, his way to L.A. is one reason why he succeeds. But he packs a noise detector, not a Gary Winn, a legislative analyst for the pistol, and he'd be the first to tell you that Ohio-based American Motorcycle Associa­ there's nothing he loves better than peace tion, is trying to spread the word about and quiet. Gordon's program. In the nine months that Gordon has been " Buster Gordon has singlehandedly enforcing Vanderburgh County's noise ordi­ cleaned up the streets of Evansville, and it's nance, more than 300 offenders have been not because he's running around in a cop brought to justice, and Gordon has risen to suit," Winn says. the rank of hero among local insomniacs. "The reason is because he knows motor­ "Go get them. Buster," crowed an edi­ cycles and he knows motorcycle language. torial in a local newspaper. "Buster made When he talks to the bikers, they under­ me a believer," pronounced Mayor Russell stand him. He's a 25-year member of the G. Lloyd. "We need more Buster Gordons association, for God's sake." in our society today," extolled an Evans­ Winn says that most cities fighting noise ville radio station. pollution "try to cure the disease by killing Who is Buster Gordan 7 the patient." He's a former Hell's Angel and a regis­ " They either try to ban motorcycles tered nurse. a disabled iron worker and an outright or they try to solve the problem by airplane pilot. By day, he's a mild­ throwing money at it. All they really need is mannered field enforcement officer for the someone like Buster." local environmental protection agency. City officials from as far away as Anchor­ By night. he's a volunteer vigilante in this age, Alaska, apparently are beginning to southwestern Indiana county's war against agree. Cambridge, Mass., Louisville, Ky., noise. and Saginaw, Mich., also number among His dedication is unwavering, and his the cities that have requested information law is simple: "Thou shalt not make noise." about the Evansville program. If thou dost. thou shalt pay-from as little Meanwhile, Gordon, with the help of as $25 up to $1,000 for a single violation. State Rep. Gregory Server, an Evansville To determine whether a citation is war­ Republican, is hatching a plot to take his ranted, Gardon stands 50 feet from the ordinance to the Indiana legislature with source of the disruption and turns an his an eye toward seeing it implemented state­ noise detector. If it registers 85 decibels or wide. more. it is deemed unlawful. "It's a good, fair ordinance, and it's Asking Buster Gordon what's so bad directed at people like me," says Gordon, about noise is like asking a Ford dealer who likes to think of himself as a champion why he doesn't drive a Chevy. of the little people. "Noise pollution destroys hearing; and it "I love bikes and I love bikers. All they can cause neurosis and psychosis," he do wrong is make noise. And I love to bust begins. "It makes you irritable and it makes the noisy ones, because they're giving you mean. And people are getting meaner people like me a bad name.'' all the time." The pickings are getting slim for Gordon, If that argument doesn't sway you, he'll who describes Evansville streets as "99 pul I out his calculator and try the scientific percent quieter than they used to be." But approach. he says his work in the city is far from over. "Suppose it's 2 in the morning and one Next on his hit list are firecrackers, faulty This article is reprinted with permission of loud motorcycle is cruising the streets. air compressors, and loud parties. the Associated Press. Suppose there are 12 houses to a block and The people of Evansville are applauding. at least two people to a house. Very quietly. 0

14 EPA JOURNAL inherent in city life, essential and irreduci­ urban noise problems, and a~e the lever of Noise ble, they must be borne. The music of the government most likely to do so. This is (radio) boxes is not in that category." American federalism in action. Unfortu­ I can only partially agree with this con­ nately, it is an exception to the norm, which in Our clusion. Clearly the city dweller is not in­ today views local government as an "exten­ different to his plight. On that point we sion service" of the Federal Government. Cities agree. A recent Gallup survey conducted This partnership approach is one which the for the National League of Cities showed National League of Cities supports to the John P. Rousakis that forty percent of urban residents think fullest extent, since it recognizes the capa­ Mayor of Savannah, Georgia. noise pollution is a serious problem. Half bility of local governments. believe urban noise levels have grown in Helping, not regulating, is the most effec­ President of the National the last five years and a similar number tive way the Federal Government can aid League of Cities believe that not enough is being done to municipalities. There is a move afoot in solve the noise problem in cities. The most Congress to ensure that such help is avail­ astonishing of the Gallup results indicates able to cities. Some members of Congress that 1 out of 5 people see noise as a serious hope that EPA will divorce itself from its threat to health. All of these public percep­ regulatory agenda and begin supporting and tions of the problem are in fact true to a encouraging local noise efforts through large extent. partnership activities. Applying local re­ However, Mr. Trippet classifies most ur­ sources and local institutions to reduce ban noise as " essential and irreducible ... noise pollution is clearly the most logical inherent to city life." On that point we step at this time, a course which Congress differ. Many of us have been led to believe has quite wisely charted under the leader­ this. We are victims of conditioning. The ship of Senator Culver. fact is none of these noises must be borne Cities and people want action on noise, by the public. Like all types of pollution, not reams of shelf-sitting research reports noise has a manufactured source and and Federal Register reprints. No one needs people are involved along every step of the to be told time and time again that noise is way from production to operation. People a health problem and that it causes stress. cause noise pollution and people can pre­ For the average person who wants quiet, vent it. None of us can deny the fact that researching and contemplating the noise urban noise levels are on the upswing. None problem doesn't reduce it. Positive action of us can deny that not enough is being by applying resources to abatement and done about noise in our cities. The question control at the local level is the answer. is what is being done to reverse these cur- It must begin now or our cities are apt to ~ rent trends 7 Despite seven years of experi­ devour themselves with noise. Let's not ence with Federal legislation to control wait until we can prove beyond a doubt that noise (the Noise Control Act of 1972), noise causes cardiovascular disease. Let's noise seems to be becoming worse. Part of act now to reduce noise and prevent it from this current dilemma, I believe, rests with becoming a clear-cut contributor to health­ the previous focus of the Noise Act where problems. Active prevention, not remedial accountability, authority, and responsibil­ reaction, should be the goa I of a national ity to solve our Nation's problems were strategy for noise control. bestowed solely upon EPA. How EPA's noise program is structured The view was that Washington regula­ in the future will either enhance or nullify tions would solve our noise problems. It's efforts at the local level. I believe that his past summer Time magazine offered clear that this approach failed. that Wash­ EPA's efforts will positively demonstrate Tan essay on the subject of urban noise ington could not solve the noise problem, that an equal partnership between cities pollution; specifically those "surly troops" that the problem refused to surrender to and the Federal Government can succeed who manage a symbiotic relationship be­ uniformity and central governance in the Eighties ... a partnership consistent tween roller skates and 90 decibels of non­ solutions. with the President's articulated urban stop disco while aimlessly meandering The Quiet Communities Act of 1978, policies. down our city streets. It noted that many authored by Senator John Culver ( D-lowa). My good friend. Barbara Blum, summed cities are responding to this newest form of recognized the inadequacies of that Wash­ it up quite clearly when she said, "Noise urban noise pollution by enforcing existing ington-based approach and embraced the from a variety of urban sources is help­ noise ordinances "to hold the volume notion of loca I solutions to loca I problems. ing destroy the neighborhoods which down." Frank Trippet, a Time senior writer In fact. the new law directs EPA to refocus the President is seeking to save under this who authored the editorial, thought it re­ its efforts toward local governments, since urban program." In his Environmental markable that cities would single these local leaders hold the key to quiet. Senator Message to Congress this year President people out for attention amidst the "inces­ Culver said, " . .. The Quiet Commu­ Carter spoke of an urban noise program sant horn bleats-the ingenious cacophony nities Act may be the forerunner of future and its importance, highlighting not regula­ of screaming sirens, screeching tires, shat­ urban policies, which can be expected to tory programs, but substantive self-help tering jackhammers, clangorous garbage place greater emphasis on the role of local programs aimed at accomplishments, not cans, raucus trucks and roaring buses." He communities with less dependence on the wishful thinking. Any partnership efforts concludes from his observations that "still, Federal Government." between cities. States. and the Fed era I the city dweller, though besieged by Rather than solving our problems with Government will recognize that cities and chronic noise among other' civic abomina­ nationally legislated solutions. Congress is their people provide the decisive and criti­ tions, is not indifferent to his plight. Cer­ recognizing that cities are qualified to solve cal difference between action and inaction, tain noises, those of traffic for instance, are and between success and failure. O

OCTOBER '979 15 I I

16 EPA JOURNAL above the noise generated by the vehicles private sector, which must be responsible Curbing or equipment. This is a requirement of the for furnishing the direction in noise abate­ Occupational Safety 'V'd Health Act and the ment. The private sector possesses the nec­ Safety and Health Regulations for essary knowledge of what problems must Construction construction. be solved in order for the goals to be The necessarily high level of the warning achieved. And, there are obvious incentives Noise signal, however, often disturbs residents for a contractor to achieve noise abatement nearby. In order to lower the noise level of goals. By Paul . Howard, Jr. the warning signal, the noise made by the Most important of these is that reduction equipment must be lowered. of noise in construction means complying Therein lies the principal problem for with federa lly imposed occupational noise contractors. Few source controls (those standards. In addition, the contractor has built in with the equipment) for industrial a concern for the hea Ith, safety, and welfare equipment are now available. But, it is of his employees; wants to reduce costs source controls which provide the best associated with worker's compensation long-term approach to the problem of claims; and increase worker productivity. we are subject to a multitude of wide­ reducing noise. Finally the contractor wants to be as good ranging sounds at home, work, and Source controls are more economical in a neighbor as possible to those who live play. the long run than " retrofit" measures, around the construction site. But what differentiates everyday sounds which are extremely expensive to imple­ For these reasons, contractors believe from what we call "noise"? Noise is a dis­ ment and seldom work as well as source that a market for efficient noise-controlled traction, an agitation, an inconvenience. controls. For example, while a contractor products currently exists. Manufacturers Noise is rarely appreciated and, at best, may build barriers, enclose equipment oper­ have said that they cannot invest in devel­ only tolerated. ations, and substitute equipment to reduce oping quieter equipment until there is an Over the years, construction noise has noise, these temporary, expensive meas­ adequate market or until the noise factor is been tolerated as a necessary but tem­ ures often fail to adequately protect work­ a strong selling factor. Contractors are porary inconvenience attendant to prog­ ers and construction requirements may convinced that the market does, indeed. ress. But today, government agencies at the require operations that cannot be accom­ exist. Federal, State, and local levels are under­ plished without raising environmental noise While EPA should establish noise stand­ taking serious efforts to reduce or eliminate levels. ards for newly manufactured equipment noise at construction sites. These efforts Economic research has indicated that and require that those standards be met, have produced mixed results. noise abatement regulations will significant­ certainly a reasonable lead time must be Two principal types of noise--occupa­ ly increase construction costs. Because no allowed to develop and produce this equip­ tiona I and ambient-are the targets of the increases in productivity will accompany ment. And. noise regulations should apply government's attention. Occupational noise the higher costs of equipment with noise only to equipment produced after a specific is related to the safety of the worker, while controls, regulations at all levels will be date. ambient noise relates to the impact of noise inflationary. (It has been estimated that While more research is necessary to on the community. built-in noise controls will add about three develop noise controls on many types of The Associated General Contractors of percent to present costs of new equipment. equipment, current technology exists to America, recognizing the benefits of pro­ By contrast, retrofit controls designed to control noise levels on others. Some equip­ tecting the health of its workforce, has long reduce noise levels by five decibels will ment-air compressors, for example-has supported efforts to reduce noise at the add up to 10 percent to the equipment's already been so developed. But, until construction site and has worked with initial cost.) reasonable uniform standards and require­ assorted agencies to develop the most prac­ What should be the role of the Federal ments are developed, manufacturers will tical ways of achieving noise abatement. Government in the noise abatement proc­ not produce and contractors will not have Construction noise should be, and is, a ess? Initially, government agencies should available to them, equipment with reduced serious concern to contractors. An indus­ establish final equipment noise regulations. noise levels. trial insurance survey reported that hearing Any other role by the government should be In the long run, substantial noise reduc­ loss is the largest compensable health prob­ extremely limited and directed at specific, tion at the construction site Is attainable, lem today. ln addition, nearly half of the well-defined problems such as the risk of provided the Federal Government. manu­ American population experiences aggravat­ hearing impairment. reduction of the num­ facturers, and contractors work in unison ing and potentially harmful environmental ber of people exposed, and the rate of toward this goal. noise, according to the Environmental progress in noise abatement by industry. The Association of General Contractors Protection Agency. The Associated General Contractors rec­ encourages the Federal Government to real­ The most important question, then, is ognize that some regulation is necessary istically assist the private sector in the how best to achieve the goal of noise abate­ and beneficial and we are committed to research and development of noise-con­ ment in construction 7 providing the most cost-effective product trolled equipment and calls upon manufac­ The Associated General Contractors of possible--whether it is a sewage treatment turers to accept the challenge of producing America support the inclusion of contrac­ plant. a highway or subway, a building, a efficient, rellable, and quieter construction tua I requirements to reduce noise levels dam, or a power plant. The government equipment. during construction provided the require­ must a Isa recognize that increased costs By working together we can enhance the ments are practical. feasible, and capable are associated with virtually every environment for the worker as well as the of accomplishment. This means that meas­ government regulation. community, while continuing our Nation's ures to control noise should be realistic and Activities of the Federal Government progress through construction. Let's do just free of conflict. Unfortunately, this is not should always complement those of the that and let's be realistic about it. O always the case. For example, a conflict exists in the Paul Howard is President, Associated requirement that back-up noise devices on General Contractors of America. vehicles and equipment must be heard

OCTOBER 1979 17 trial noise level is 90 decibels for 8 con­ Noise levels were so high that a worker Noise in the tinuous hours. At this level. one-fifth of the whose hand was caught in manufacturing work force will eventually suffer disabling equipment received no aid since no one loss of hearing. heard his screams. And in a noisy Ohio Workplace When confronted by workers on this plant, two pressroom auto workers were By Jeff Stan!> y. issue, most companies propose the use of permanently disabled when they failed to hearing protectors. Why? Simply because hear approaching panel racks and warning ear plugs or ear muffs are inexpensive and shouts. put the burden of noise control on the work­ One point we try to make to management ome work place hazards crush and kill ers. It is the opinion of the UAW health and is that noise can interfere with work. When S instantly. Noise doesn't . It wreaks its safety staff, and many OSHA specialist s, noise is particularly loud or unpredictable, havoc slowly through the years in ways that personal hearing protectors should be errors in people's observation increase, workers seldom notice. used only as a last resort. Ear plugs readily perception of time is distorted, and greater Noise doesn't get the front page cover­ work themselves loose, often cause infec­ effort is required to remain alert. l:oud age that air pollution does. lt doesn't create tions, and can mask warning shouts and noises a Isa can lead to breaks in concen­ the fear in people that nuclear waste does. signals. tration sometimes followed by changes in It doesn't get the research dollars that water While we recognize that hearing protec­ work rate. pollution does. Nevertheless. of all the tors must sometimes be used for temporary A coal industry study indicated that countless types of pollution, it is unques­ protection, UAW insists that the long-term intermittent noise conditions during mining tionably the most pervasive and varied- solutions to excessive occupational noise are likely to cause distractions leading to it is literally everywhere. must be engineering and work-procedure poorer work. Other studies have confirmed Nowhere is it more prevalent or more controls. OSHA can recommend various additional effects of noise exposure, dangerous than in the work place. Not too operational and engineering procedures including exhaustion, absentmindedness, long ago the National Institute for Occupa­ within the work place, and it can enforce mental strain, and absenteeism-all of tional Safety and Health estimated that them where necessary. EPA contributes to which increase the risks of accidents and over 2.5 million U .S. industrial workers in-plant noise controls by setting standards injuries. were exposed to harmful levels of noise. for equipment manufacturers. UAW has been intensifying its fight This, they said, was a conservative Hearing loss is by no means the only against workplace noise. We stiffened the estimate. negative health effect that workers suffer hea Ith and safety provisions of our latest The Occupational Safety and Health from noise. Noise creates stress which national contracts. At many locations we Administration (OSHA) and EPA are re­ causes blood vessels to constrict. Pulse have won noise-monitoring rights. In addi­ sponsible for Federa I noise control initia­ rate, blood pressure, and breathing rate tion, we have pressured a growing number tives. OSHA is responsible for noise con­ increase, and there are marked changes in of plants to work out noise-abatement trol in the work place. It sets and enforces blood chemistry. A German study has docu­ schedules in consultation with local union decibel standards, for example. EPA rein­ mented a higher rate of heart disease in health and safety representatives. forces OSHA's activities by establishing noisy industries. In Sweden. several re­ We also are aware that to truly protect standards for hearing protection devices searchers have noted more cases of high our union members, we must inform them and for industria I equipment that have a blood pressure among workers exposed to that noise does not necessarily stop when direct impact on the environment. In addi­ high levels of noise. the workday ends. UAW supports EPA's tion. EPA establishes noise limits oncer­ In addition to heart disease problems, programs to reduce environmental noise tain occupation-related processes such as the increased flow of adrenalin and other and to educate people about its associated trash compaction. hormones makes workers prime candidates health effects. A noisy environment only American industrial workers-and in­ for illnesses caused by stress. In the words aggravates the effects of work place noise. dustrial workers everywhere, for that mat­ of Leonard Woodcock, former President of We do not want to let this situation ter-have always had to fight for health UAW, the auto workers "find themselves continue. protection in the work place. We are cur­ unusually fatigued at the end of the day I am often asked by union leaders rently locked in such a struggle to bring compared to their fellow workers who are what they can do to protect their members about noise control measures in America's not exposed to much noise. They complain from excessive noise. My advice is, first manufacturing plants. of headaches and inability to sleep and and foremost, to educate their whole Why is it so important to us that noise they suffer from anxiety ... . Our members membership about noise hazards and how is abated in the work place? Well, I think tell us the continuous exposure to high to abate those hazards. They can then work we have to look at the hea Ith effects of ex­ levels of noise makes them tense, irritable, with management to adopt comprehensive posure to excessive levels of industrial and upset." programs to engineer out noise on a noise. Research is continually identifying the definite timetable. OSHA can be called in Certainly, the most easily observed of contribution of noise to other physical to bring added pressure on companies. In these health effects is hearing loss. Re­ disorders. A five-year study of two manu­ addition, help can be obtained from their searchers have found that excessive noise facturing firms in the United States found unions' regional offices, their national wears out the nerve cells of the inner ear. that workers in noisy plant areas showed bargaining departments, and their health If the exposure is long-term, as it is for greater numbers of diagnosed medica I and safety staffs. thousands of UAW workers, noise destroys problems, including respiratory ailments, Noise can never be completely elimi­ the cells, and the hearing loss not only be­ than did workers in quieter areas of the nated from manufacturing plants, but it comes permanent but grows worse. At plants. can certainly be reduced to safe levels. what level does continuous noise become The health and safety of industrial It is management's responsibility to pro­ dangerous to hearing? There is no definite workers is jeopardized also by noise loud vide effective noise control engineering answer; however, the consensus is 80 enough to mask warning signals. The and procedures. But management seldom decibels. In the U.S. the allowable indus- effects of masking and speech interference carries out its responsibility without a push can be dramatic, as in the case of an acci­ from workers. For this reason, workers and Jeff Stansbury is a staff writer of Solidarity, dent in an auto glass manufacturing plant. their unions must remain ever-vigilant the official magazine of the United Auto Workers (UAW}. against noise hazards in the work place. D

18 EPA JOURNA L By Chris Perham The Sound of Silence Jack G., a heavy equipment operator. and his wife Mary are arguing in their front yard again. He accuses her of mumbling so that he can't hear her over the noises of theneighborhood. She replies that he's just not paying attention. Mary knows perfectly well that when she talks to Jack in the house he hears her. Sarah P. has been working in the mills for many years.Lately her familyfinds that she's cranky and irritable. She won't go along on outings, avoids social gatherings, and has even stopped going to chu_rch. She accuses them of talking about her behind her back and often makes comments that aren't relevant to the conversation going on around her. Tommy L. is a drummer in a teenage rock group. He and his friends play for hours in family ga­ rages and basements. He sometimes notices a ringing sound in his ears for hours after practicing. His mother says he never listens to her any more and wonders what all that music is doing to his hearing. He discounts her fears. saying hearing loss is only for old people.

earing loss is one of America's most hearing if you are exposed to them for ex­ public needs to have an awareness of the H common chronic disorders. Some re­ tended periods of time. What many people existence of hard-of-hearing persons.· searchers estimate that approximately 19 do not recognize is the danger posed These are people who are not deaf, who do million Americans have measurable hearing by household appliances as well; food not use sign language, but who need an losses, and 13 percent of the U.S. popu la- processors, mixers, hair dryers, and extra measure of consideration when it t ion have hearing losses described as han­ vacuum cleaners often exceed the safe comes to sounds and communication. dicapping. How much of the damage can be noise limits. During conversations hard-of-hearing peo­ attributed to noise exposure 7 Nobody The reason for concern is that prolonged ple may comprehend clearly only one or knows for sure, but EPA research shows and excessive exposure to noise can dam­ two of every ten words. Trying to communi· that workers, students, homemakers, and age or destroy the hair cells in the inner ear, cate under those conditions is like being people in all walks of life are regularly disrupting the sound transmission mecha­ in a foreign country where you know only assaulted by sounds that border or exceed nism. While there are many thousands of a fraction of the language. It's extremely the limits above which hearing is damaged. hair cells in the inner ear, beyond a certain frustrating." Unfortunately when the ear is injured it point the damaged cells will not heal. Exposure to loud noises generally affects often shows no visible signs, so few people Under continued high level noise exposure the high-frequency hearing range first. The realize the damage they suffer until it is damages accumulate and will eventually people affected can lose the ability to hear too late. Hearing loss from noise is irrepara­ affect enough frequencies that a person's things like clocks ticking. crickets chirping, ble. Scientists note that a hearing a id cannot ability to comprehend speech is impaired. the ring of telephone bells. and certain compensate for lost hearing the way glasses At this point the listener has trouble not portions of speech, especially consonants. can improve poor eyesight. For a noise­ only with the volume but also the clearness The sounds of s. sh, ch. p, m, t. f, and th induced hearing loss, the impact is espe­ of speech. are some of the first speech sounds to be cially profound because no operation or There is as much variation in sensitivity lost, depriving spoken conversation of its amplification can restore total sense to the to sound as there is in the sensitivity of meaning. Speech begins to sound like a jumble of sounds that the injured person skin to sunlight. Just as some people sun­ meaningless string of vowel sounds. hears in place of normal conversation. burn at the first exposure to sun and others Other hearing phenomena caused by ex­ What sounds are dangerous to hearing can frolic at the beach endlessly without cessive noise include ringing in the ears, and why? According to EPA research the pain, so some people flinch at the sound of distortion and discomfort associated with danger zone begins when the daily noise a car horn while others revel in the hair­ even moderately loud sounds. level averages about 70 decibels. This raising blasts at discos. There is no way of Scientists report that the impact of this means that certain traffic sounds, power predicting what a person's sensitivity to hearing loss is psychological as well as lawnmowers, jet planes, chainsaws, and sound will be, and many people only find physical. People who cannot hear the jackhammers are all hazardous to healthy out when it's too late. Continued on page 39 Dr. George W. Fellendorf, director of the EPA-sponsored National Information Center for Quiet, says, "The American

OCTOBER 1979 19 hese are just a few of the technological, also would help international organizations Fighting Tlegislative, and incentive measures to working in noise abatement, such as the control the growing menace of worldwide International Civil Aviation Organization. noise pollution that are cited in the 1978 the World Health Organization, and the Noise report of a two-year study by the Paris­ International Standards Organization, to based Organization for Economic Coopera­ recommend standards and practices. Pollution tion and Development (OECD). Mem- ber countries are: Austr.alia, Austria, Noise Abatement: At the Belgium, Canada, Denmark., Finland. Source and Through Operation Around the France, the Federal Republic of Germany, Greece, Iceland, Ireland, Italy, Japan, Lux­ Regulations World embourg. the Netherlands, New Zealand, OECD countries unanimously agree that Norway, Portugal, Spain, Sweden. Switzer­ noise abatement at the source is essential, By Dr. Ariel Alexandre land. Turkey, the United Kingdom, and the particularly control through emission United States (and Yugoslavia as an standards. Most countries have emission observer). standards for motor vehicles. Many coun­ The report. Reducing Noise in OECD tries have, in addition, various regulations Countries, was compiled as a result of for aircraft, trains, construction, and light some staggering projections made by the and heavy equipment. For example, Ger­ OE CD's Ad Hoc Group on Noise Abatement many and the Netherlands are preparing Policies. A sample of some of their findings noise emission standards for rail transport; include: total noise energy output in OECD a number of OECD countries have estab­ countries has doubled in the past 15 years.; lished reference limits for construction between 15 and 20 percent of OECD in­ equipment; and some countries impose habitants (more than 100 million people) noise emission constraints during the plan­ are now exposed to outdoor noise in excess ning or licensing process of light and heavy of the 65 decibels often considered the industrial plants. upper limit of acceptability; by next year, When source regulations are not suffi­ the world's motor vehicle population will cient or applicable, regulations on oper­ exceed 300 million units; air traffic world­ ation are used in many countries. Restric­ wide (USSR and China excluded) will tions in time are the most widespread probably double between 1975 and 1985. operating regulation: for example, Switzer­ And if stringent measures are not adopted. land prohibits driving of heavy trucks at forecasts suggest that the number of people night and on Sundays, and night curfews exposed to excessive noise will increase, are imposed on many airports around the as has been stated during the recent OECD world. meeting of the Ministers of the Environ­ Restrictions in place, common for mobile In Dnrl/ngton. ngl nd. chool childr n ment (May, 1979). noise sources, are used mainly to regulate I' rticip 1ting in project spon or d by The concern of the OECD member coun­ traffic or construction equipment near th Not Adv1 ory Council nd th tries is reflected in the observations made noise-sensitive areas (homes, churches, Ac/vi. ory Ce11t r for Educ tion ro m os in the report, which are meant to act as schools, hospitals). Care is taken in estab­ urmg no1 /fl tit town nd conducting blueprints for fighting noise pollution lishing such restrictions so that they do not imp/ aci I 11rvoy an 11alsa offoct through cooperation by government. indus­ merely lead to a transfer of noise from try, and the public at local, national. and one critical area to another. international levels. The following are Another method is noise zone regulations summaries of a few of these key task force which restrict the levels of noise allowable action proposals; they include examples of in land areas surrounding major industrial measures already in force or being consid­ or transportation facilities. Regulations of ered by different OECD countries. this sort are already in effect in areas near Japanese and French airports, and have Standardization of Noise been recently advocated by Switzerland, Measurement the Netherlands, and Germany. OECD countries are in agreement that it would be highly desirable to have a univer­ Noise-Related Charges Can sal, standardized, simple method of meas­ Complement Other Forms of uring total noise received and compatible Control noise emitted from sources such as road Such noise-related fees as charges on air­ vehicles, aircraft, and machinery. Work is craft designed to motivate product manu­ under way to develop a standard measure­ facturers and operators to develop, man­ ment that would be practica I, accurate. and ufacture, and use quieter equipment are usefu I for planning and enforcement pro­ becoming popular in several OECD coun­ cedures. Such a standard also would prove tries. Revenue from noise-related charges valuable for evaluating pervasive long-term can finance comprehensive noise abate­ noise in various areas under prescribed ment programs, including research and conditions. development, and pay for building insula­ Standardization measurements would tion and land acquisition. have the additional benefit of minimizing C.. • ,, 1eo 0•1 pnya 18 barriers to trade by providing manufac­ turers with a universal "language." They

20 EPA JOURNAL OCTOBER 1979 21 able air compressors (January, 1976) and will be needed if average community noise DoWeNeed medium and heavy trucks (April, 1976). levels are to be reduced. During the same time only a handful of One source in particular will have to be States and cities have promulgated new controlled if we as Americans are ever to Nevv product standards with most opting for in­ achieve EPA's goal of an environment free use type standards. Why-is it because it from noise that jeopardizes our health or Product Noise was presumed that the Feds would handle welfare. That source is the automobile. new product standards and since such As a result of its extensive use, over 87 standards would preempt State regulations. million Americans are currently being Regulations? they opted to put their resources elsewhere 7 exposed to environmental noise above When one considers the investment re­ those levels identified by EPA as required Jesse 0. Borthwick quired to get a standard out in terms of to protect public health and welfare. The Executive Director, National time, money, manpower, and politics it is number of people affected could increase a miracle that any ever get promulgated! to over 110 mi II ion over the next de ca de if Association of Noise Contr I Promulgating national standards has be­ diesel powered vehicles and subcompacts Officials come even more difficult as a result of the with high power-to-weight ratios become new Federal philosophy of encouraging the backbone of our automobile population. "non-regulatory strategies." The easy thing Again, our only hope is to successfully to do would be to ignore the need for new reduce sources of noise through new With the passage of the Quiet Commu- product regulations and concentrate on product regulation. nities Act of 1978, Congress has rec­ those sources which can be easily and ognized the importance of comprehensive quickly controlled by in-use ordinances. State and local programs in the overall Have Existing New Product However, while in-use controls can offer national noise control effort. Through the Regulations Had Any Effect On immediate relief from worst case problems. establishment of the Quiet Communities Current Noise Levels? the only way we will ever realize a reduc­ Program which authorizes noise control tion in general community noise levels in Yes, as a result of new product regulation grants for the first time and through the this country wilf be through the adoption of initiated by the State of California in 1967, expansion of technical assistance made comprehensive new product regulations for supported by other States and communjties available to State and loca I noise control major noise sources. in the early 1970's, and by EPA in 1976, agencies, Congress has finally filled the average motor vehicle noise emissions void in its program to curb this most per­ What Effect Can New Product appear to be dropping. vasive pollutant. In 1967 California amended its Vehicle State and local noise control officials Regulations Have On Our Code to make provisions for vehicle noise couldn't be happier! For while the Noise Future Acoustic Environment? control. The law established this country's Control Act of 1972 declared that the pri­ In controlling any noise at its source there first sound level standards for new motor mary responsibility for control of noise are three basic approaches: ( 1) you can vehicles (applicable to vehicles manu­ rests with State and local governments, require that sources be manufactured to factured after January 1, 1968). The new only 7 out of the Act's 921 lines of text operate as quietly as possible (2) through limits were a compromise between what supported State and local controls. More anti-tampering provisions require that was desired in terms of noise reduction was said about what State and local gov­ sources be properly maintained so as not and what was economically practical at the ernments could not do than what was to be toincreasetheirsoundlevelabovethatas time. Under specified wide-open-throttle done to support them. Therefore, it should originally manufactured and (3) through acceleration tests, limits were set at 88 be easy to understand why State and local in-use controls require that they not be used decibels for trucks and buses, 86 decibels officials are openly supportive of the new in any manner as to create excessive and for passenger cars and pickups, and 92 Quiet Communities Act and the resultant unnecessary noise. Anti-tampering and decibels for motorcycles. In 1971 the shift in EPA program direction away from in-use controls affect only those individua I California legislature adopted a schedule new product noise regulation to State and sources which are considered to be exces­ of decreasing levels (see Table 1) with the local programs. sively noisy when compared with the fol lowing three objectives: ( 1) establish an With all the emphasis now being placed general population. However by establish­ eventual limit that was low enough to on the new Federa I grant program and the ing noise emission standards for new practically eliminate public annoyance renewed national noise control effort stem­ products the entire source population can and complaints (2) allow sufficient lead ming from the Act, we have perhaps lost be affected with average noise emissions time so manufacturers could do necessary sight of the fact that the Quiet Communities dropping as the new quieter products are research and design and tool up to meet Act amended and strengthened the Noise introduced. This is the type of change that production deadlines and (3) allow the Control Act of 1972 rather than abolished (, I / {J I it. In all the furor, we seem to have forgotten the need for and the importance of new product noise regulations in the overall TABLE 1. national noise control strategy. Pa seng r C rs Motorcycles p,,. llf'J , nd Why Are New Product Noise "" Mc t •r tlrtvcn Cycles Emission Standards so 1970 88 86 88 Important? 1973 86 84 86 It seems that we have gotten along fine 1975 83 80 80 without them. Since the passage of the 1978 80 75 75 Noise Control Act of 1972, the EPA Office 1988 70 70 70 of Noise Abatement and Control has pro­ mulgated standards for two products, port- ln1t1.1/ el11cle sound I vet l1m ts ( 1n decibels) established for n w motor veh1clcs sold 1n C al1fornia.

EPA JOURNAL years. During this period, most of the major school activities such as dances. In Mont­ Noise Control jurisdictions have implemented noise con­ gomery County, student volunteers are trol programs. In each case public concern involved in the monitoring process too. and pressure have been instrumental. The Last year the Montgomery County Through noise pollution issues in our region range School system also participated in the field from aircraft, highway, and construction testing of three brochures developed by the Education noise impact to noisy home air-conditioning American Speech-Language-Hearing As­ systems. sociation for EPA. The brochures. Noise By M r ha Pennino The issue of aircraft noise from National and Your Hearing, Hear Here/, and Think Airport has consistently generated the Quietly About Noise were developed for greatest public concern. Residents and distribution at the time o1 school hearing elected officials are both knowledgeable tests. The booklets provide students from about this noise issue and equally frus­ kindergarten through high school and their trated by the complexity of attempting to parents with information about the effects xcessive noise is the most frequently reduce the noise impact. Citizens groups of noise pollution on hearing. These bro­ Eidentified undesirable condition in throughout the region have organized spe­ chures now have been incorporated into a urban neighborhoods. Moreover, neighbor­ cial committees and groups to monitor the complete hearing test package that will be hood residents show increasing dissatisfac­ situation and exert pressure to ease this available from EPA for use by educators, tion about noise levels with each passing growing noise problem. Through the Metro­ school nurses, and audiologists in the near year. This alarming trend emphasizes the politan Washington Council of Govern­ future. need for concerted effort at all levels of ments, the regional organization for this In 1974. the Metropolitan Washington government to reduce intrusive noise area 's elected officials, we have had a noise Council of Governments initiated an Area­ levels. monitoring system installed. Also. in Au­ wide Environmental Noise Program that As an elected official, I am keenly aware gust a test of a new flight pattern was initi­ was sponsored initially by the area's local that legislation directed toward control of ated at National Airport. Area residents are governments and the U.S. Department of environmental problems is only a partial participating in evaluating the impact of Housing and Urban Development. A major answer to reducing pollution. In my view, this noise control approach through a focus of this program has been to develop aR effective public education and informa­ telephone survey and a hotline. and disseminate information about noise tion program can contribute to significant School children represent a vital link in pollution to the public. citizens associa­ noise reduction. Fortunately, in recent noise reduction through public education tions, elected officials, and local govern­ years the information available to assist in and information. ment staffs. public education about noise pollution has It is important for young people to de­ Two years ago, the Council received grown. Increased public awareness leads to velop an appreciation of quiet as an envi­ funding from EPA to develop educational both implementation of individual and ronmental right and an understanding of the modules for elementary and secondary community noise control mechanisms and adverse effects that excessive noise expo­ school levels. This year the author. Dr. more effective communication with elected sure can have on their health and welfare. Donna Dickman, will give seminars for officials and administrators about noise In recognition of the need to reduce noise teachers on the use of these units. Numer­ concerns. exposure in the schools, two local school ous school systems throughout the Nation In the Metropolitan Washington area. I systems, Arlington County, Va., and Mont­ have shown interest in these noise educa­ have observed a definite increase in public gomery County, Md., have developed noise tional units. concern about noise issues in the past five control policies that set decibel limits for Classroom discussions about noise pol-

Complaints abour minibike noise decrca erl. ftcr youngsters in r..11wt{Jo111ery County. Md.. were c o11 11sclcrl on lww mu/ w/11.r r without di<>turbing orhers. OCTOBER 1979 23 lution can help inform parents on ways to For severa I years, I have seen the effec­ control noise. tiveness of an information sharing concept Volunteers As the tools available for noise assess­ through the work of the Council's Noise ment are rapidly expanding, there is a con­ Technical Committee. In this program, tinuing need for educational programs to noise staff from the region's major jurisdic­ Against help State and local governments develop tions meet monthly to discuss noise issues and implement noise control programs. and to help one another develop plans to Noise Three years ago, 90 area planners attended ease noise problems. a workshop on Noise Control and Land Use It has been my experience that maximum Planning sponsored by the Metropolitan public commitment and support for almost Washington Council of Governments and any issue result from going to the people EPA Region 3. Six members of the Fairfax rather than waiting for them to come to you. County, Va., Office of Comprehensive Plan­ For example, several years ago EPA spon­ ning were there. sored a Noise Exposition in a large area Since then, noise has received increased shopping center. Locally, Montgomery attention from our planning staff. Specific County has held two "Noise, Sound and guidelines for analysis of noise impacts You" Expos. Each of these has sensitized have been developed and applied. When thousands of people to noise pollution as an potential problems are identified, the staff environmental problem. assists the developer in creating a com­ Last fall the Council of Governments patible noise control plan. sponsored a Minibike Roundup for young­ To assist developers and builders in sters in Montgomery County. Minibike planning noise reduction projects, the noise was a frequent cause of complaints in Montgomery County, Md., noise staff ar­ the County. The youngsters received noise ranged a seminar on building noise. It was and air pollution analyses for their mini­ attended by 30 area builders and develop­ bikes, pa rticipated in a skills contest. and ers. They received information on site received information about areas where planning, acoustical. and architectural ap­ they could ride minibikes without disturb­ proaches to noise contra I. Again, applica­ ing others. At last check minibike noise tion of this information in future develop­ complaints were less frequent in the ments will result in quieter homes and County. Similar educational efforts directed offices for area residents. toward other noise problems could be Recently, local and regional purchasing equally successful. officers met at the Council of Governments t o Two other efforts in the Metropolitan discuss noise reduction through specifying area show the potential for noise reduction (at the time of requests for bids) the accept­ through user education. Both were devel­ table noise levels for various products. A pi­ oped in cooperation with the Council of lot project conducted by the Federal Govern­ Governments. In a pilot inspect ion program, ment to acquire quieter lawnmowers was Prince George's County, Md., noise control successful. Many of these quieter lawn­ officials conducted noise measurements on mowers are loaned to local governments refuse collection vehlcles. Owners and EPA scientists recor d sound levels along operators were then counse led about the use highways and in other areas as part of for use by groundskeepers in noise sensi­ research into the effects of noise. tive areas such as hos pita Is and schools. of quieter trucks in residential areas. The Local governments represent a substantial State of Maryland noise control staff devel­ market and emphasis on the desirability of oped brochures on air conditioning and re­ he major part of the struggle for a quieter quieter products should not be ignored. frigeration condensing noise and grain Tsociety is carried on by private citizens But the push for quieter products must dryers, which were distributed through- working through voluntary local organiza­ come from a concerned public which out the State. The brochures tell how to tions. While EPA's Office of Noise Abate­ makes quiet a priority for local government quiet these noise sources. The pilot inspec­ ment and Control plays an essential role in officia Is. tion counseling program and the brochures coordinating noise control efforts nation­ In the past year, noise control personnel are ways to augment noise control efforts wide and providing technical support and in this area have received frequent calls beyond a program of individual responses advice to local communities, the success of from people about specific home noise con­ to complaints. any local noise control program depends on trol problems. Quieting in the Home, a As an elected official, I recognize the the support of that community's citizens. Nationa I Bureau of Standards publication concerns of my constituents in governmen­ Indeed, if it were not for the vigorous efforts that has been reprinted by EPA, gives valu­ tal regulation to foster environmental of local volunteer groups, most local noise able aid in solving many home noise prob­ change. There is both an aversion to over­ control programs would not exist. lems. This "quiet it yourself" book and other regulation and understanding of the limits EPA's efforts to reduce noise pollution materials on noise are now being distributed of regulation as an effective control. I involve giving support to local communities through the National Information Center for strongly support public education and in­ Quiet in Rosslyn, Va. The EPA-funded formation programs as an adjunct and an center has been created to serve as a re­ alternative to legislative restraint. An edu­ source for people who want a quieter per­ cated public can help achieve a quieter sonal and community environment. The tomorrow . D center for noise information will aid public participation in noise reduction efforts. MBrtha Pennino is Vice Chairman of the Fairfax County, Va., Board of Supervisors and President of the M etropolitan Wash­ ington Council of Governments.

24 EPA JOURNAL to help them develop and enforce their own • Purchased noise films which CAN loans plete training package for use as a national noise control efforts. One aspect of this is to interested parties program activity, setting up noise control the ECHO program (Each Community Helps • Purchased sound level meters which committees in many of its 3.000 chapters, Others). in which EPA reimburses out-of­ CAN loans to private citizens for testing and providing necessary assistance and pocket expenses to enable experienced noise levels support so that each chapter can contribute local noise control officials to travel to other to the development of effective local noise communities to provide advice and assist­ • Achieved extensive newspaper coverage control programs. While some of the cur­ ance in developing an effective, enforce­ for noise control activities rent Noise Counselors receive part-time able noise control program. The "local" "Our experience suggests more than compensation. the Association plans to orientation of these experts is important. volume motivates people," Hayes said. develop a completely volunteer program because a thorough familiarity with the "Another is awareness of what noise really mobilizing thousands of members. workings of local government units is es­ does to people. Third is disappointment According to the Association's Sandra sentia I to develop effective local noise with enforcement." Hayes added that the Sweeney, experience gained so far indi­ control efforts. best thing that can happen for noise control cates that older citizens can be especially In authorizing EPA's noise activities. is for enough people to become concerned, effective in dealing with noise problems. Congress recognized that excessive noise thereby creating a voting constituency for They need some encouragement and direc­ is essentially a local problem demanding noise control that elected officials will re­ tion to get started, she sa id, but once local solutions. Every community is unique spond to. started. they "go like mad." The Noise and requires a noise control program tai­ Counselors handle a tremendous volume of lored to its specific needs. No one is better Mobilizing Older Americans noise complaints. They seem to have an qualified to determine what those needs advantage over younger people, Sweeney arethan residents of the community, and The Hawaii group is the largest of its kind said, especially in the resolution of noise no one is in a better position to see that in the country. However, a nationwide complaints that require negotiation in po­ things "get done." volunteer effort for noise control being de­ tentia 1adversary situations. The Noise veloped by the American Association of Counselors are more readily accepted. Retired Persons may eventually outstrip it. Noise in Paradise especially by business operators. and the The Association is a non-partisan associ­ result is usually an amicable settlement of Getting things done can require some "in­ ation of older Americans with approxi­ the noise problem. If the Association's fo1'med nagging," according to Joan Hayes, mately 12 million members and more than plans are successful, within a few years president of Citizens Against Noise, a vol­ 3,000 local chapters. Membership is open there should be a tremendous Increase in untary citizens' group with over 1.200 to people over the age of 55, though asso­ the number of local noise control programs members in Honolulu, Hawaii. Hayes has ciate memberships are available to those spearheaded by a group of volunteer Noise led the campaign against noise in Hawaii over 45. It has been involved in environ­ Counselors. since 1970 when a "screeching" air-condi­ mental issues for years through the Senior The National Urban League embarked on tioner unit near her apartment proved be­ Community Service Employment Program a similar program In July of this year. This yond the power of the local government to in which older citizens receive training initiative. targeted toward inner-city resi­ handle. There was a city noise code but no and are placed in community service jobs dents. will address the noise problems enforcement, a common condition. Put off with various government agencies and associated with urban environments. by the bureaucracy, Hayes slipped notices non-profit organizations. under the doors of neighbors saying "Let's The Association is currently managing a A National Coalition start a Citizen's Campaign Against Noise Noise Counselors Program, an outgrowth (CAN)." Within 10 days, 70 people had of its general environmental effort, in which A national coalition of volunteer citizens' contributed a dollar each and CAN began. senior citizens receive training in noise con­ organizations concerned with noise issues, Since that time. CAN has worked steadily trol and are then assigned to work in their the National Alliance for Quieter Com· to raise the community's concern about local communities. Currently, there are munities, has just been formed. According noise, promote legal action against chronic about 20 Noise Counselors. to Frank Sordyl. treasurer, more than 30 offenders, and carry out public education Of the Noise Counselors now at work. organizations across the country have been programs about noise. In the past 10 years, some receive part-time compensation contacted, and virtually all of them ex­ CAN has: with funding provided by the Department of pressed enthusiasm for the concept of a Labor under the Older Americans Act. The national coalltion, and willingness to par­ • Pioneered a noise education program ticipate in its development. in the Oahu school system, which one prin­ remainder are volunteers. EPA provides technical equipment and educational ma­ As presently envisioned. the alliance cipal called "one of the most successful will play a vital role in assisting and sup­ innovations" he had seen at his school terials for the Noise Counselors. The Association plans to use the experi­ porting efforts of volunteer groups to deal • Brought a San Francisco Police Commu­ ence gained in this "pilot program" to de­ with noise problems. O nity Noise Control Officer to Honolulu to termine exactly how much training and show city and State officials how to handle technical support is necessary to enable the noise problems Noise Counselors to be effective in dealing • Placed noise awareness posters on buses with noise Issues. Once this evaluation is and in schools and libraries complete, It anticipates developing a com- • Distributed radio public service anounce­ ments about noise

OCTOBER 1979 25 how to rmplement them is another Sirens concern. Putting solutions into effect is a local matter, says Hayes of Citizens Against Noise. " But I think suggesting to a local community how it can be done effectively could be a very appropriate national under­ taking. "A Federal organization could do some testing easily and see what makes sense and put out a simple, easy to understand flyer," Hayes explains. But there is another side in the emer­ gency warning noise issue. Some.don't

) • • • 0 believe the noise is a problem needing J-: ~~ tighter controls. Even louder signals may be justified, they add. and local agencies on the emergency noise In fact, emergency warning signals are problem. actually getting noisier, not quieter. This Providing evidence in support of ad­ trend is acknowledged by Harry Foster, verse noise effects, a recently published northeast region district manager of Fed­ study by three University of California eral Signal Corporation, one of the biggest "There's the road noise-the researchers found that firefighters appear siren makers in the country. to suffer greater hearing loss than the Louder equipment is necessary, he says, tires screeching. There's the general population. because automakers are making their cars sirens and the air horn. It's all Such research has convinced Howard tighter and tighter to keep out noise and quite devastating." -a de­ Mcclennan, president of the International provide a seal for air conditioning. scription of a firetruck ride by Association of Firefighters, that siren Siren noise isn't a problem, Foster Vincent Riccordella, fireman noise is a problem, and he is now bringing continues. "The easiest and best way to with Ladder 81 of the New the issue up during meetings with the give the alert is the siren and the air horn. York City Fire Department. Occupational Safety and Health Adminis­ They save many millions of dollars a year tration. and many lives." var the past 20 years, it's been one Sirens affect everyone, adds Norman Louder signals aren't justified, counter ''O of the most profoundly. pervasive Waitzman, author of "Siren City USA," those concerned about emergency warning noise abatement problems that we have­ a report for Ralph Nader's Public Interest noise. The continuing push for more vol­ the virtually endless proliferation of emer­ Research Group of Washington, D.C., on ume is due to tradition and economic gency warning signals," says Dr. Thomas sirens in the Nation's Capital. "I can't interest, they argue. H. Fay, an audiologist who has advised even sit down and read this report without "Noise is a vastly overused tool," says the New York City Fire and Police Depart­ some siren blaring outside," he says. Hayes of the citizens group. " I think it's ments and is a member of the Council on Advocates of stiffer controls on emer­ an old fashioned solution, one that does the Environment of New York City . gency warning noise see several possible more harm than good." "It's been enormously hazardous to the steps. Foster of the Federal Signal Corp. hearing of the men that have to ride on As one measure, Waitzman believes 50 denies that his company encourages these vehicles," says Dr. Fay. "The gen­ percent of ambulance noise could be louder signals to make a dollar. "The eral public is simply tortured by all this, eliminated. A siren can be shielded. he marketplace has asked for it. Fire, police, particularly those that live near the medical says, making it more precise and effective and other emergency departments have centers." and reducing the noise for the hundreds said that people don't see or hear. So Fay's view is supported by Joan Hayes, of thousands of people who hear it. they've asked for better light and sound, Chairperson of the Board of Citizens In most cases flashing lights are ade­ both of which we have responded to." Against Noise, a nationally-concerned quate, says Hayes, who believes there Several observers agree that many public interest group. Noise control is a should be a maximum decibel limit for emergency departments favor louder jigsaw puzzle and the siren piece is an sirens as well as the minimums that are warning equipment, because they may important part of the whole picture, she often set. feel that the more noise they make, the says. Ear muffs help for firemen, says fireman more people will get out of the way. Fireman Riccordella describes the R\.ccordella. Ii trends and old attitudes are going to effects from his own personal experience. There could be a different kind of be changed, two key problems need to be He starts his workday "pretty relaxed." warning system, says New York audiol­ solved, several of those concerned about Then, as the number of trips on the fire ogist Fay. He suggests a radio signal with emergency warning noise say. engine builds, he describes it this way: "I receivers on all vehicles. First, says fireman Riccordella, there get a little hyper. We have to talk louder Limits could be set on the use of sirens isn't enough education on the problem to hear. The TV goes up. After upwards of depending on how serious the ca II, Waitz· and the answers. Second, says audiologist 40 to 45 runs, we've got to talk up to each man says. Sirens could be prohibited Fay, basic auditory principles haven't been other. Our tolerance for noise decreases. between 11 p.m. and 7 a.m., according to applied when left up to industry itself, Our sleep is interrupted." a 1976 recommendation of a Washington, and when restrictions have been imposed, "Noise makes you sick in many, many D.C., health and environment advisory those principles have only been used ways," Riccordella comments. As a result committee. within certain limits. D of this, he was instrumental in setting up While there may be steps that can be a meeting in February, 1978, with New taken to reduce emergency warning noise, John Heritage is an Assistant Editor of York City labor groups and Federal, State, EPA Journal.

26 EPA JOURNAL Er J I tal Aln lac. 9 Glim

The Hunim.er•s Voyage

Hundreds of tiny and remark- Most of the 300 types are able ruby-throated hum­ tropical. like many beautiful mingbirds often fly at this birds, they often were slaugh­ time of year across the Gulf of tered for their feathers. Before Mexico to their winter homes such commerce was outlawed, in Latin America. a total of 40,000 skins report­ They are carried on this edly were sold to a London firm remarkable flight by wings beat­ in one year. ing at a furious rate of 60 In courtship, the male ruby strokes a second or better. The throat puts on an aerial circus wings move so rapidly that they as he dives in front of his future are seen only as a blur and the mate. The male's resplendent thrumming sound of their red throat consists of iridescent motion gives the bird its nick­ feathers, which glow with name of "hummer." astonishing intensity when The ruby-throated humming­ struck by sunlight. The female bird, the only species of this perches on a branch. her head type of bird that nests east of turning from side to side as she the Mississippi River, some­ watches the display. times migrates as much as The nests are walnut size 2,000 miles from its breeding dye to help attract their atten­ have been induced to take sugar and are tied to a branch with site to winter quarters. tion. Thousands of these birds water from hand-held feeders spider silk woven by the needle­ Some of these tiny creatures summer on the East Coast and and to alight on a finger. This like bill of the female. Two pea­ starting their migratory flights many visit feeders in the Wash­ may reflect their confidence in sized white eggs are laid in the are being caught in almost ington area. their ability to make a quick nests, which have been camou­ invisible mist nets erected in When two or more humming­ escape if they see danger. flaged with lichen and are often the Dolly Sods area of the birds gather at a feeder, they Yet the hummers are wary of lined with thistle down. The Monongahela National Forest often engage in mock aerial the bees that often find the sugar mother bird feeds newly on the Allegheny Front, some combat, darting at each other water dispensers appealing and hatched young by thrusting 200 miles west of Washington. at speeds of up to 30 miles an cling to the feeder tip. Since regurgitated food into the gap­ The Brooks Bird Club members hour. However, they never hummers frequently refuse to ing mouths with her long bilf. who tend these nets as part of a seem to actually make physical visit when a bee is at the sugar Although hummingbirds are bird banding operation always contact, contenting themselves water, some feeders come relatively safe from non-human swiftly release the fragile hum­ with playing an aeria l game of equipped with "bee guards" predators, there have been re­ mingbirds so they can resume "chicken." which permit only the stiletto­ ports of bass. frogs, and hawks their journey without injury. In order to sip sugar water like beak of this bird to gain occasionally swallowing them. These birds have proportion­ from feeders, they hover in the access to the fluid. A more significant cause of ately immense wing muscles air in one position until their The ruby-throat is only one death for hummingbirds is the and, for their size, the hummers hunger has been sated. The of more than 300 species of unexpected storms they some­ outperform any other warm­ hummingbird must be refueled hummingbirds. The family in­ times encounter while migrat­ blooded animals. Their daily every 10 to 15 minutes. Scien­ cludes the smallest bird in the ing over the Gulf of Mexico. intake of sugar, a principal tists have found that in order to world, the 21/.1-inch Cuban Workers stationed on off­ food, may amount to half the save energy these birds will "bee." shore oil rigs and sailors on ves­ bird's weight. These creatures sometimes pass into a state of Until the discovery of Amer­ sels in the Gulf occasionally take food 50 to 60 times a day torpor at night instead of sleep­ ica, no European had ever seen report the arrival of large and use their tubular tongues to ing. In this condition, the bird's a hummingbird. All members of numbers of starving and ex­ suck up nectar from flowers body temperature drops and its this family are found in the hausted small birds such as such as gladioli. energy output sinks to only one­ western hemisphere only . . hummers and warblers. They also frequently visit twentieth that of normal sleep. Like all living creatures they glass feeders hung by bird For a tiny creature weighing are vulnerable to an environ­ lovers for free sugar water only about one-tenth of an ment that can sometimes be un­ often colored red with a food ounce, the hummingbird shows predictable and lethal.-C.D.P. a remarkable lack of fear of people. It wi II often fly or perch within 15 or 20 feet of humans and, in some cases. these birds

OCTOBER 1979 27 Technology are carrying out ambitious pro­ of pertinent information. The importance of Cooperating grams to control pollution from this source this was recognized in a memorandum of in order to help their countries use domestic understanding signed by Administrator supplies of coal effectively. Castle and Dr. Hartkopf last May. Policies With Germany In another area, EPA is now in the proc­ and practices for establishing and maintain­ ess of providing a grant for an evaluation of ing useful data systems are now under on the the Andco-Torrax pyrolysis process to con­ constant review by the two countries' vert solid waste to useful resources. The environmental agencies. facility, located in Frankfurt, makes use of A problem linked with industrial growth Environment high temperature in a vertical shaft furnace is air quality planning and maintenance. to convert municipal refuse into a burnable As a U.S.-German project this has been By David H. Strother fuel gas. The noncombustible materials are focused on new source siting. Other com­ converted to a glassy aggregate which may mon concerns such as long range transport be used by industry. The $100,000 invest­ measurement and control of pollutants are ment by EPA will provide valuable technical being addressed by the OECD and the information which is otherwise unobtain­ Economic Commission for Europe. dministrator Douglas M. Cost le will able since there are no identical facilities Although not the subject of a formal A greet an old friend of EPA this in the U.S. Test results will be available to project, both auto emissions including month when his counterpart in the Federal both countries. diesel fumes and problems in radiation also Republic of Germany, State Secretary Another project involves the exchange of are being jointly studied by the two Guenter Hartkopf, arrives in Washington. information by the two countries on suc­ agencies. D Dr. Hartkopf is attending a meeting of cessfu I enforcement of environmental laws. NATO's Committee on the Challenges of The German legal decisions on the feasibil­ David Strother is the European Program Modern Society, which is rounding out its ity of existing technology for control of Manager in EPA's Office of International tenth year. CCMS was initiated in 1969 by emissions from coke ovens and casting Activities. Edward Olson and Jeffrey Gallup the United States in cooperation with the houses, for example, already have been of the Department of State also contributed other 14 NATO member countries to seek useful to EPA. The comparison of monitor­ to this article. solutions of pressing environmental prob­ ing and enforcement philosophies and lems. Costle is scheduled to address the practices helps to identify both strong and CCMS meeting. weak aspects of each country's approach. Helping Preserve Dr. Hartkopf last year presented Costle Each time a new pollutant Is identified as with the special German Environmental pin, hazardous, one of the major problems fac­ Greek Temples only the second foreigner ever to receive ing scientists is the lack of information this symbolic award. as a measure of the about the pollutant prior to the time that It was a celebrated 19th century Ger­ cooperation between the two countries in they began focusing attention on it. Exist­ man, Heinrich Schliemann, who in­ environmental matters. ing specimen banks of pollutants don't vestigated the origins of Greek civili­ The United States and the Federal Re­ always help because the new chemical zation and in the process put classical public of Germany as two of the most ad­ compounds often are subtle, and their exist­ archaeology on a more scientific basis. vanced industrialized nations share many ence may be masked by preservatives used Today the Federal Republic of environmental problems. In recognition of in storage of tissues and other specimens Germany is playing a new environ­ this, Dr. Hartkopf represented his country in these banks. mental role in helping to preserve five years ago in signing an " Agreement To solve this problem, EPA in coopera­ ancient Greek architectural works between the Government of the United tion with the National Bureau of Standards and statues. Jt is one of the leaders in States of America and the Government of and the German Federal Environmental a new pilot study by NATO's Commit­ the Federal Republic of Germany on Agency has undertaken to create a speci­ tee on the Challenges of Modern Cooperation in Environmental Affairs." men bank to identify samples which will be Society on the conservation and res­ Today the two countries are not only of the greatest potential use, and then de­ toration of monuments. The project jointly pursuing several projects under the vise a foolproof method of storing them seeks to combat deterioration of such Agreement but also are working together where they are unaffected by preservatives. classical treasures as Greek temples, in environmental programs under the au­ EPA and its German counterpart main­ along with medieval cathedrals else­ spices of the Organization for Economic tain close contact in order to harmonize where, from the ravages of 20th cen­ Cooperation and Development (OECD) their positions on toxic substance reg­ tury air pollution. and the CCMS. ulation and to address problems not cov­ This and numerous other environ­ The most active and productive project ered by international organizations. Last mental problems w i ll be the subject under the U.S.-German agreement deals May Steven D. Jellinek, Assistant Admin­ of a CCMS conference at the State with emission control technology for istrator for Toxic Substances, met with his Department in Washington, D.C. energy processes. Five subprojects under counterparts in Bonn and Berlin to study October 22-24. Of its 14 pilot studies, way in this category are flue gas desulfur­ the question. As a result, it is now likely the West Germany leads two, on air pol­ lzatlon, utilization of products from this U.S. inventory of existing commercial lution assessment methodology and desu lfurization. control of nitrogen oxide, chemicals will be adopted as the de facto modeling, and hazardous waste dis­ of particulates, and other control international inventory, with great savings posal, and is an active participant on technologies. for international trade in these products. half a dozen others. Both countries are faced with increasing A key aspect of an effective environmen­ In addition to being " co-pilot," in demand for the use of easily accessible ta I program is the avai la bi lity and exchange the Committee's phrase. of the study supplies of coal which is re latively high in of monuments, West Germany also sulfur content. EPA and the German Minis­ plays the same role in projects on flue try of Interior and Ministry of Research and gas desuifurization and drinking water.

28 EPA JOURNAL Gas Mileage The EPA recently released gasoline mileage figures for 1980 cars and trucks. The ten cars with the best mileage ratings were four Volkswagens, two Japanese Hondas, and four Chrysler cars made in Japan. EPA expects all of the major manufacturers to meet or exceed the 1980 corporate average fuel economy standard of 20 mpg for passenger cars. Under the Energy Policy and Conservation Act, manufacturers must increase the efficiency of their passenger car fleets each year until they meet the final fleet average of 27 . 5 mpg in 1985. For the 1980 cars tested through August 29, 1979, the top ten miles per gallon ratings are: Estimated Manufacturer Car Line Engine*

42 Volkswagen Rabbit (Diesel) 90 CID** 40 Volkswagen Rabbit (Di ese 1) 90 CID 37 Dodge Colt 86 CID 37 Plymouth Champ 86 CID 36 Honda Civic 91 CID** 36 Volkswagen Dasher (Diesel) 90 CID 36 Volkswagen Dasher Wagon 90 CID {Diesel) 35 Dodge Colt 86 CID*** 35 Honda Civic 91 CID 35 Plymouth Champ 86 CID*** *Cubic-inch-di splacement **5 speed manual transmission ***Dual range manual 4 speed transmission. Joan Z. Bernstein EPA General Counsel Joan Z. Bernstein has decided to accept the General Counsel position at the Department of Health, Education, and Welfare. Ms. Bernstein has served at EPA since July 1977, and also was briefly Acting Assistant Administrator for Enforcement.

States Served by EPA Regions

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OCTOBER 1979 29 The Soviet scientists pre- Burn Permit Stalled funds. The project will caused a delay in delivery pared a similar water plan EPA's New York office handle all of the county's for construction. During for a segment of the will not issue a permit to recyclable solid waste, the summer, bacteria Connecticut River in Rollins Environmental some 1,000 tons per day. counts reached 115 times Massachusetts, based on Services, Inc. for !nciner- It also will process 250 the maximum level al- Soviet constraints and ation of wastes containing tons per day of sewage lowed by the State. planning approaches. The polychlorinated biphenyls sludge from Wilmington's County officials posted Russians discussed some (PCB's) at its waste dis- treatment plant, which warning signs along the Grants Awarded of their treatment tech- posal facility at the pre- handles most of the coun- banks of the river, due to EPA's Boston office has nologies and pollution sent time. The company ty's sewage. The resource their concern about the awarded a total of abatement procedures, must have the permit be- recovery system will threat of disease to peo- $519,700 for studies of which are not used in this fore it can handle PCB separate combustible ma- pie drinking or touching the effects of urban runoff country. Research and wastes. Speaking to local terials from the waste river water. During the on three New England design of water pollution officials in Logan Town- stream, to burn in a nearby week just before the fish waterways. The Massa- control systems In the ship, N.J., where the commercial power plant kill as many as two to chusetts Department of USSR is the responsibility facility is located, Region for electricity production. three million gallons of Environmental Quality of the All-Union Scientific 2 Administrator Chris The remaining waste will raw sewage a day were Engineering will receive Research Institute for Beck said, "I do not in- be separated into market- overflowing the system $334,200 to study the Water Protection, an tend to issue a PCB per- able metals and glass. into the river. Mystic River and equivalent of EPA, which mit to Rollins until all the which will be sold. Any $110,500 to study Lake sent researchers to the environmental questions solid waste left after this Clean Air Program Qulnsigamond in Wor- symposium. have been thoroughly step will be mixed with Promoted caster, Mass. The Mystic assessed to my satisfac- the sludge, composted in Region 4 Public Aware- River project will assess tion. and the company's closed digesters, and ness Branch has com- the impact of urban runoff problems with meeting its processed into a high- plated a slide/ cassette on a highly urbanized current operating condi- grade humus material that show on the Clean Air stream and lake. The Lake tions have been cor- can be used as a soil con- Act. The 22-minute pro- Ouinsigamond project ff. rected." Beck added that ditioner or a light burning gram outlines important will look at what contribu- ~ there will be no test burn- fuel. The project is ex- provisions of the law and tion runoff makes to the Ing of PC B's at the Rollins pected to ease the pres- shows the contrast be- eutrophication of the lake, Sludge Dumping Cut site until EPA is satisfied sure on New Castle tween scenic beauty and County's dwindling land- in conjunction with a Nine municipalities in that the company can pollution-filled skies In fill capacity and result in study funded through the Region 2 plan to stop operate its incinerator the Southeast. The pro- near-complete recycling Clean Lakes program. dumping their sewage properly. gram shows the impact of of municipal wastes. Region 1 also has given sludge into the ocean dur- pollution control on sta- the New Hampshire Water tionary source emissions. Ing the next year. Sewage '?-'.:-<:P~ Supply and Pollution Con- sludge from the ten treat- It also describes the trol Commission $75,000 ment plants involved, health effects of air pollu- for a project on the Oyster some 95,000 wet tons, tion. Copies of the slide River in Durham to find will not go into the waters presentation have been cost-effective runoff con- off New York and New furnished to EPA-funded trols, which can be ap- Jersey as in the past. The ~ local and State air agen- plied to a statewide communities are using Reclamation Project cies throughout the program of permits. environmentally accept- Initiated Florida Fish Kill Region. able alternatives for Builders broke ground A major fish kill occurred US/USSR Water sludge disposal. In in the Hillsborough River Symposium recently for an EPA-sup- Lincoln Park, N.J. the ported resource recovery in Tampa, Fla., after large ~ Region 1 recently held a G Two Bridges sewage au- system in New Castle quantities of untreated UJ symposium on "River cc thority has completed an County, Del. The system, sewage from the city were Basin Water Quality Plan- incinerator. The Modern called the Delaware Rec- dumped into the sewer. ning and Management" Transportation Com- lamation Project, will con- The decomposing sewage for 200 American and pany's facility in Kearny, vert solid waste and sew- depleted oxygen in the Russian scientists in N.J. has completed a age sludge into energy river below the level Noise·Ordinance Cambridge, Mass. The sludge/ septic tank waste and marketable products. needed by the fish. Offi- Enforced meeting revolved around treatment plant. Other EPA' s Office of Solid cials blamed heavy sum- EPA's Chicago office has the water protection plan- municipalities involved, Waste Management is mer rains for overloading developed a noise control ning techniques of both all in New Jersey, are contributing an $8.25 mil- the n:iain no~th-~outh sew- ordinance that is being countries with emphasis Atlantic Highland, Cedar lion demonstration grant age line, which 1s already enforced by police officers on technological. regula- Grove. Pequannock Town- toward the construction. in bad repair. Federal in several Midwestern tory, and institutional ship, West Paterson, Region 3 will add approx- funds for improving the cities. The policemen tell constraints. The Amari- Totowa, Washington imately $21.5 million sewage system were ap- Region 5 Noise chief can scientists prepared a Township, West New from the Agency's grants proved in late 1977 but Horst Witschonke that river basin water protec- York, and Wanaque. program for construction equipment shortages have they like the ordinance tion plan for a segment of of municipal sewage treat- because it can be inte- the Severski-Donet River ment facilities. The re- grated quickly with radar in the Ukraine Republic, mainder of the more than speed checking. They re- applying U.S. laws, regu- $60 million cost will port that rather than di- lations. and technologies. come from State and local verting personnel to direct

30 EPA JOURNAL noise control enforce­ Beneficial winds and cur­ termination of its license these law enforcement ment, police forces can rents helped keep much to handle radioactive ma­ agencies to fight fraud continue to perform their of the oil offshore. But oil terials. The San Francisco and abuse in the construc­ regular duties and enforce is known to be mixed with Regional Office coordi­ tion grants program. Sev­ noise control ordinances water as deep as 40 feet nated the participation of eral hundred law enforce­ as the need arises. Wit­ below the surface. Scien­ technical staff from EPA's ment officia Is from 15 schonke and the Region 5 tists fear that much eco­ Office of Radiation Pro­ Western States attended noise staff have built up logical damage may be grams and the Office of the seminar. an inventory of sound­ done to the Gulf even if Oil Shale Permit Set Research and Develop­ measuring equipment for the coast is spared. The EPA's Denver office ap­ ment. Agency scientists vehicle noise control. first oil blobs reached the proved a crucial air pollu­ found tritium in samples which they lend to local Texas coast two months tion permit for Colony of food, water, and urine police departments on a after the blowout oc­ Development Operation, collected in Tucson and ~ I tria I basis. One officer told curred, and experts feel a joint venture of Atlantic analyzed at the Nevada s EPA personnel that be­ that the threat will con­ Richfield Co. and Tosco lab. American Atomics a: cause the equipment is tinue for a similar period Corporation. which plans Corporation produced unusual the noise moni­ after the well is capped. an oil shale development tritium-filled tubes used Fuel Switching Penalties to illuminate watch dials toring has more impact on Colorado's Western Region 10 has proposed than radar equipment on Slope. The proposed fa­ and exit signs. and the penalties totalling more slowing down speeders. cility will mine and proc­ company had been emit- than half a milllon dollars The Chicago Regional ess 66,000 tons per day ting unacceptably high in response to charges by Office also offers a noise of oil shale and will pro­ levels of radioactive th e A gency En f orcemen t control sign, which can be duce nearly 15 million tritium gas. The State Division that 114 motor used to notify residents barrels of oil, more than a ~tomic Energy Commis- vehicles were illegally that a local noise control million barrels of liquid sion has ~ccept~d the fueled with leaded gas. ordinance is in effect. Inspection and propane, and more than com~an~ s app!ica!ion for The vehicles were oper­ Maintenance Discussed 50,000 tons of ammonia term1.nat1on of its license ated by the Loomis The Kansas City, Kan., and sulfur each year. The pe.nding a.g~eement .to cer- Courier Service. Inc. and police cars were among "prevention of significant ~am conditions. which Gelco Courier Service the vehicles tested deterioration" permit include th~ cl?sure and Inc. EPA alleges that the when EPA Region 7 contains air pollution lim- decontamination of. the vehicles. designed for un- brought the Inspection its far more stringent than Tucson manufactu~in? leaded fuel, were supplied and Maintenance emls- the national standards, as plan~. Dr. Al Moghissi of with leaded gasoline in sion van to town. The is required when air qual- EPA.s R&D. program tes~ 1 - Seattle and Portland from Oil Spill Response Agency provided this lty in an area is cleaner ~ed.•~ hearings that. whi 1 e pumps that were equipped Region 6 personnel joined service in conjunction than national standards. 1nd1v1dual exposure would with nozzles made for use other Federal and State with a public meeting be- The permit process is de­ probably be low, th~ ~\ant only on pumps that con­ agencies in a massive ef- ing held by the Kansas signed to protect pristine ~ad emitted more tntrnm tain unleaded gasoline. 7 fort to ease the impact of Special Legislative Com- air in places like the in one year than all ~ Region 10 proposed pen- oil on the Texas Gulf mittee on Air Quality and energy-rich West. Several nuclear power _Plants'" altiesof $245.200against Coast from the runaway Pollution Control. The environmental organiza- !he U.S. Am.enc.an Atom- Loomis and $297,700 Mexican oil well in the Committe sought public tions were involved in the 1cs Corporat.'o~ 1s cur- against Gelco. rently negotiating the re- Bay of Campeche. The views on proposed legis- permit review process. location of its operations Drinking Water Advisory Coast Guard is On-Scene lative amendments to According to Kevin Mar- to an unpopulated area of Coordinator, with the State air quality laws. key of Friends of the southern Nevada. EPA's Seattle office found Dallas Regional Response One bill under considera- Earth, which was involved excessive levels of bac­ Team and the EPA Na- tion provides for a manda- in the process, the EPA Water Pollution Seminar teria In water supplies of tional Response Team tory inspection and main- review was "h~.rd-hitting . two Oregon communities. active. Contingency funds tenance program for ~~dwell done .. He ad.d?d The San Francisco offi.ce Cove and Haines. and have been made available vehicles in areas that do informed public part1c1- recently hosted a seminar advised residents to boil for the containment and not meet Federal air pation can help produce for U.S. attorneys, State their water before drink- cleanup effort. EPA pro- quality standards. EPA approvable permits." attorneys general, and ing It. The Agency made vided staffing for the Re- staff at the testing van F.BI personnel from Re- the discovery during spot gional News Office set up answered questions about g1ons 8, 9, and 10 to ere- checks of water supplies in Corpus Christi, Texas, air pollution and gave free ate an awareness and in 13 communities. EPA's to answer media inquiries emissions inspections. understanding of the frequent spot checks are from around the world. Despite very hot weather Water P~llution Control designed to augment the The Agency sent its new interest was high. More Act. The increased knowl- monitoring and reporting research vessel. the Ante- than 100 cars took the edgeabillty will help EPA performed by water sys- lope, to help track the oil test and over half of them to better cooperate with tern operators throughout slick. The ship will locate passed. Radiation Support Oregon, which has not yet and protect environmen- Region 9 provided techni­ assumed enforcement re­ tally sensitive areas, and cal assistance and sup­ sponsibility for the Safe determine the condition port in the case of an ap­ Drinking Water Act of of oil that hits the coast. plication to the Arizona 1974. 0 Atomic Energy Commis­ sion by the American Atomics Corporation for

OCTOBER 1979 31 Oppo tunities in the Quiet with successful noise control programs oversight responsibility in this environmen­ Communities Act volunteer to assist other areas requesting tal area to guarantee that the Quiet Com­ technical help. munities Act is implemented according to Two examples of local initiatives as­ the desires of Congress. I hope that our tions, was the guide for the Quiet Commu­ sisted by the ECHO program are Des noise abatement programs will not be given nities Act. The Act enhances this effort by Moines and Council Bluffs, Iowa. Both of a low priority in the budgeting process now authorizing: these cities received help through ECHO that research is beginning to show that ex­ • grants to States, local governments, and from noise officials in Lincoln, Neb., and cessive noise has adverse implications for regional authorities for identifying noise Des Moines is now preparing to aid other our health. The noise programs. especially problems, developing abatement plans, Midwestern communities in establishing those assisting communities, are already and evaluating control techniques. local noise abatement strategies. understaffed. and budget cuts could leave • loan of equipment to State and local Ultimately, noise can only be controlled them unable to function effectively. governments and: by having a strong constituency willing to Nevertheless, I am optimistic about the devote time and effort to local programs. future. Noise has been a neglected environ­ •studies to determine the needs of State The Quiet Communities Act offers many mental concern both in research and con­ and local governments for noise control. opportunities for communities to receive trol programs. The Quiet CommuQities Act Second, Esch Community Helps Others technical and material assistance from EPA and further health research, however. are (ECHO) enables communities to obtain for their own initiatives. EPA is marshalling helping to make the public aware of the assistance from other communities which the efforts of volunteers dedicated to en­ need to control the Nation's growing noise are already dealing effectively with noise hance this country's quality of life. problems, and to provide communities with problems. Local officials from communities The Senate intends to m<1intain close the tools to fight local noise problems. O

Implementing the Act

EPA's Noise Program recently 1>e9an funding cooperative agreements to State. city. and tocel ent1t1es to Implement the provisions of the Quiet Communities Act.

State Cooperative Agreement Awards 80tse. Idaho Department of Community $14,172 Development Californl8 California Department of S28.000 Health Services Thornton. Colorado City of Thorn ton $7.600 Colorado Department of Health $27,990 Demonstration Cooperative Agreements Connecticut Department of Environmental $35.644 Protection New Orleans. Louisiana Office of the Mayor $49,774 Delaware Department of Natural S25,000' Des Moines. Iowa Building Inspection $28,297 Resources and Department Environmental Control Massachusetts Massachusetts Port Authority $31,610 $45,000 Florida Department of Environmental National Association Washington. O.C. 20009 S35,474 Regulation of Neighborhoods District of Columbia Metropolitan Washington $42,750 Portland. Oregon City of Portland $11,414 Council of Governments National Institute of Washington. D.C. 20036 $60,000 Minnesota League of Minnesota Cities S38.000 Governmental Purchasing $26,473 Nebraska Department of Environmental State of New Jersey Department of Environmental $34.440 Control Protection New Hampshire Bur8llu of Occupational $25.000 State of Oregon Department of Environmental $33,978 Health Quality S35. 109 New Jersey Department of Environmental City of Chicago City of Chicago $24,035 Protection Delaware Valley Regional Philadelphia, Pennsylvania $130,000 New Mexico Health and Environmental $17.000 Planning Commission Department North Dakota Oepartmel\I of Health $28,008 Regional Noiae Technical Assistance Centers Ohio Ohio Department of Health $27.293 Region 1 University of Hartford $90.000 Hartford. Connecticut 06117 Oregon Department of Environmental S28.414 Quality Region 2 · Rutgers University S90.000 New Brunswick. New Jersey Utah Department of Social Services S25,000 08902 Washington Department of Ecology $30.000 Region 3 University of Maryland $90,000 College Park. Maryland Loc•I Cooperative Agreement Awards 20742 Brookline/Newton. Brookline Conservation $12.000 Region 4 North Carolina State $90,000 Massachusetts Commission University Raleigh. North Carolina Stamford, Connecticut Health Department $12,170 27650 $14,250 Teaneck. New Jersey Teaneck Health Department Region 5 Illinois Institute of Technology $90,000 York. Pennsylvania Office of the Mayor $9,279 Research Institute Chicago. Illinois 60616 K1ng1port. Tennessee Citv of Kingsport $9,500 Region 6 University of Texas at Dallas $90,000 Mentor. Ohio City of Mentor $2,200 Richardson. Texas 75080 Akron. Ohio City of Akron Health $12,000 Region 7 University of Iowa S90,000 Department Iowa City. Iowa 52242 Norman. Oklahoma City Manager's Office $12.000 Region 8 University of Colorado S90.000 Boulder. Colorado 80309 St. Louis County. Missouri Department of Community $10.000 Health and Medical Care Region 9 University of California at $90,000 B'erkeley National City, California Planning Department $12,000 Berkeley. California 94720

Region 10 Universi~ of Washin2ton $90.000 Seattle. ashington 8195

32 EPA JOURNAL Aircraft Noise: An Abatement Priority

would do well to carefully reconsider the benefits of dismantling existing Federal authority in this area .

The National Noise Abatement Effort Of course, aircraft are not the only source of noise in our environment. The Noise Control Act authorizes the EPA to identify and control other major sources of environ­ mental noise as well. However, aircraft noise does affect a substantia I portion of our population as represented by increas­ ingly well-organized citizen groups protest­ ing such noise. More important, however. is that the air­ craft noise issue represents the symbolic battle between interest groups pitted against one another in the legislative arena. Some parts of the commercial aviation industry continue to stall efforts to comply with existing regulations in the hopes that the authorizing laws will be adjusted in their favor. Other members of the airline groups have mounted increasing pressure It is crucial that the existing authority to industry have already complied, or intend on lawmakers to preserve, at the very least, reduce aircraft noise, as well as other to comply with noise regulations, in the if not strenathen laws that have been sources of environmental noise, be upheld expectation that regulations wi II be en­ held up to them as the source of relief from and fulfilled as Congress intended in the forced. At the same time, community ever present aircraft noise. passage of the Noise Control Act. D

esource nation of their impacts on the visitors to and continues to encourage other agencies the Nation's Capital and upon the monu­ to do so as well. ments themselves. The cases of Jackson Hole and National At the very least, the conflict must be Airports only highlight the complexities of Washington Monument that conversation publicly acknowledged and addressed, and weighing the advantages of activities which can be all but impossible. responsible officia Is must work coopera­ produce sound against the impact of the There is also concern for the continuing tively to develop and implement all pos­ sound which is produced. The task will not architectural integrity of the monuments sible measures to reduce and mitigate this be easy, but it is necessary. we have built to honor our country's lead­ conflict. While these measures may not, for Of one thing, however, I am certain. A ers. The possibility of accelerated struc­ various valid reasons, include the rerouting most appropriate, in fact, necessary role of tural deterioration due to noise-induced of most traffic to Dulles Airport or Balti­ the National Park Service in years to come vibrations has not been sufficiently inves­ more's Friendship Airport, a solution simi­ will be the preservation of some special tigated, but is a matter of major concern. lar to that which many cities across the places which are not polluted by sound, When the Federal Aviation Administra­ Nation have resorted, we should definitely just as we would not allow them to be tion last year issued a Draft Environmental consider suggestions such as that of the polluted by dirty air or water. In these Impact Statement on proposed policies for National Capital Planning Commission to places, the artificial and unnecessary intro­ the future of National Airport, we recom­ limit the annual allowable passenger vol­ duction of sound into a natural environment mended that the plan include development ume to present numbers. This approach, is more than just an irritation caused by of all possible measures to minimize harm combined with extensive use of wide­ what you can hear. It is, in essence, an act from aircraft noise. These should include bodied jets, could result in the maintenance of robbery, a theft of those sounds which the enforcement of strict flight regulations of present levels of service and conven­ naturally belong in these environments, and to reduce noise: site specific means to ience while reducing the number of flights, which are part and parcel of the natural and reduce noise impacts inside national monu­ noise exposure time, and negative impacts cultural heritage of this Nation. ments and memorials, and provision of an on parklands and memorials. I think back to moments of my childhood adequate mechanism to handle public In the case of National Airport, two when my father had me convinced that if complaints about aircraft noise. things appear obvious at this point. First, I listened very carefully, l could hear the While the public has for the most part the future operating regime at National music made by the stars as they travelled tolerated the existing noise levels as an must consider many factors, including across the sky. It is a legend as old as inevitable nuisance, l disagree with the environmental ones; and secondly, we do written language. What a shame it would be premise that these noise levels should be not now have enough objective information if we could only pass this legend on to our allowed to continue without close exami- to allow us to responsibly balance compet­ children by beginning it with " If it weren't ing values. The National Park Service has for all this noise, you could hear ...." 0 increased its efforts to gather necessary information within its realm of expertise,

OCTOBER 1979 33 A review of recent major been proposed by the En­ take certain safety pre- public, as well as the en- EPA activities and devel­ vironmental Protection cautions. vironment. These include opments in the pollution Agency. Costle found the pesti- special protective clothing control program areas. Steel Agreement This voluntary regula- cide a suspect cancer in some instances, and The EPA and Cooperweld tlon provides a simple agent capable of causing precautions on the prod­ Steel Company have procedure for parts manu- testicu lar effects in men. uct label. reached agreement on a facturers to certify that But he also determined To prevent contamina- program to completely the use of their parts will that its use on oranges, tion of waterways, EPA Conditional Approvals eliminate water pollution not cause automobile grapefruit. and other citrus cancelled endrin's use on The EPA recently agreed discharges from the firm's emissions to increase. can be done safely pro- cotton crops in areas to conditionally approve Warren, Ohio, plant. Manufacturers who are vided it is sprayed by where contamination of the sale of 228,000 Fords, Copperweld, head- now producing parts certified applicators wear- water is most likely to Lincolns, and Mercurys quartered in Pittsburgh, which are the equivalent ing protective clothing occur. Specifically, EPA's equipped with an elec­ has agreed to totally ellml- of parts installed on a new and respirators, or apply- decision does not allow tronic engine control sys­ nate discharges of oil, car will be able to comply Ing it from tractors with spraying on cotton In tem known as "EEC-Ill." grease, and suspended with the proposed regula- enclosed cabs. Louisiana, Arkansas. Mis- The conditional appro­ solids (big particles of dirt tions with only minimal At the same time, souri, the eastern parts of val means the cars can be that do not degrade in adjustments in their pres- Costle ruled that an envi- Texas and Oklahoma, and sold pending additional water) from its Warren ent operations. according ronmental group, the En- any State east of the tests on the electronic plant into the Mahoning to EPA. vironmental Defense Fund Mississippi River. engine control system. River by June 1, 1980. {EDF), is not "adversely The EEC-Ill functions The company, which cur­ Motor Homes affected" by the restric­ Granular Pesticides as an onboard computer rently employs about The EPA has denied a re­ tions on the citrus use of Farmers must be certified that controls the emission 2,500 people, serves a quest by the manufactur­ the pesticide, and that to use most of the widely­ control system and other nationwide market and is ers of motor homes to EDF cannot use this ac­ used granular pesticides aspects of the engine op­ one of the largest special­ exempt these vehicles tion to request a tota I ban under a new proposal by eration. While Ford Motor ty steel firms in the U.S. from the Agency's noise on chlorobenzilate. the EPA. Company expects that this regulations for new med­ "On the other hand," The proposed regula­ Additive Okay computer will function ium and heavy trucks. Costle explained, " as my tion, which would classify properly in use, the dura­ The EPA recently an­ Underthe EPA ruling, decision emphasizes, EDF certain uses of these bility of this system has nounced that It has grant­ motor homes must be in is not precluded from granular pesticides for not yet been fully demon­ ed a waiver to Suntech, compliance with the reg­ challenging the original restricted use, is neces­ strated In the certification Inc. (Sun Oil Company) ulations a hundred and determination not to pro­ sary to protect the users, program as required by permitting the sale of a twenty days after publica­ pose a total ban on the children, pets, farm ani­ the Clean Air Act. new anti-knock fuel tion in the Federal citrus uses. EDF may peti­ mals, and birds and other Also, EPA recently said additive. Register. Motor homes tion the Agency to initiate wildlife from potentially that, pending the success­ The Suntech additive manufactured before this a separate proceeding to harmful exposure, accord­ ful completion of tailpipe ~~s high anti-knock q~al- compliance date are not consider a total ban, and ing to EPA. emission tests. it has 1t1es and can be use~ m required to comply with if the petition is judged to Granulars are solid par­ agreed to conditionally unleaded gasoll~e without the regulation. be meritorious, an eviden­ ticles larger than dust, and approve the sale of Gen­ adv~rsely ~ff~ctmg auto- In turning down the tiary hearing will be held consist of carrier com­ eral Motors' 1980 diesel ~ob1le em1ss1~ns, a~c.ord- manufacturers' petition, with full rights of cross­ pounds such as clay that cars equipped with 5.7 mg to EPA. This additive EPA said no burdens in examination and opportu­ are mixed or impregnated liter (350 cubic inch. V-8) ha~ the potentla I _to slight- the regulation are placed nities to present support­ with a pesticide. Most engines. This accounts for ly increase gasoline sup- upon motor home manu­ ing evidence. If the peti­ farmers using them on all of GM 's currently plies, and Sun states Its facturers that are not tion is denied, FIFRA such crops as corn, cot­ planned diesel passenger use will significantly in- placed upon similarly sit- (Federal pesticides law) ton, tobacco, and soy­ car production for this crease the percentage of uated manufacturers in also gives EDF the right to beans already have been engine. customers satisfied with the rest of the truck have that decision judi­ certified during a nation­ EPA said the diesel gasoline anti-knock per- industry. cially reviewed. Conse­ wide EPA-State-USDA cars could not be fully formance, the Agency quently, my ruling does Cooperative Extension certified because of fail­ says. not mark a departure from Service program of appli­ ure of an emission control The 1977 Clean Air Act s the past Agency commit­ cator training which in­ device to pass the 50,000 Amendments banned the ments to provide for pub­ structed users of poten­ mile durability tests as use of certain fuel addi­ Citrus Fruits lic participation in pesti­ tially hazardous pesti­ tives unless a waiver is required by the Clean Air EPA Administrator cide decisions." cides in correct ways to granted. Suntech request­ Act. Douglas M. Costle has mix and apply these prod­ The conditional ap­ ed a waiver on December ordered a ban on most Endrin ucts. Training also in­ proval means the cars can 19, 1978. uses of the pesticide The EPA has decided to cluded instruction in rec­ be sold pending addition­ chlorobenzilate but is allow growers to continue ognizing pests, calibrating al tests of an exhaust gas Parts Review allowing treatments on to use the pesticide endrin equipment. assessing en­ recirculation valve. A regulation designed to citrus fruits to continue, on such crops as wheat. vironmental hazards, and make it easier for auto­ provided farmers and apples, and some cotton. recognition and treatment mobile owners to know others using the pesticide In doing so, however, of pesticide poisonings. which parts will not cause the Agency has placed emissions to Increase certain restrictions on the when used in the main­ way it is used to help pro­ tenance and repair of pol­ tect the health of field lution controls on cars has workers and the general

34 EPA JOURNAL national concerns. lndi- Health Aid that a health threat exists, OLIO WASTE viduals, private compa- ATER High blood pressure pa- but it can be a warning nies, local governments, .tlents could benefit from signal," said EPA Deputy EPA Guidelines and the Federal Govern- Savings new EPA proposals call- Administrator Barbara The EPA has issued guide­ ment all make choices EPA recently announced ing for the periodic meas- Blum. "Even though these lines for use by State and every day which affect our new regulations that will urement and announce- regulations are not en- local governments in use and conservation of save industries up to $200 ment of sodium levels in forceable by the Federal planning a11d managing resources." million in water pollution municipal water supplies. Government, controlling solid waste programs. control costs. These sav- The sodium monitoring these types of problems is After their plans have ings represent about 50 proposal is but one of sev- important. If a drinking been approved, States will TOXICS percent of previously esti- eral health-related issues water system has such be eligible to receive mated future clean-up addressed by the new reg- problems, for example, financial and technical Asbestos expenditures for affected ulations. They also call for they can cause consumers assistance to improve The EPA plans to develop industries. a program to limit water's to lose confidence in the their management of solid regulations to reduce or EPA's decision is a key corrosiveness, which can healthfulness of their pub- waste. eliminate hazards in pub- part of the Agency's con- add contaminants and lie water supply. This To be approved by EPA, lie schools from walls and tinuing effort to review ruin pipes. In addition, the could result in their State plans must aid the ceilings containing and reform its regulatory rules provide further Fed- choosing an alternate recovery of materials and asbestos material. programs. By eliminating era I endorsement of the source of water that ls energy from solid wastes EPA will consider sev- some future clean-up re- fluoridation of water as a ultimately less safe to and provide for environ­ era I options to reduce quirements, the action will safe and effective dental use." mentally acceptable dis­ asbestos hazards in the help to ensure that indus- health measure. posal for unrecoverable nearly 10,000 public trial water pollution con- The new EPA rules are Tuna Fish wastes. schools nationwide that trot expenditures are cost- proposed amendments to EPA recently announced a State plans, covering at are estimated to contain effective in improving the the Agency's interim pri- change in the water pollu- least a five-year time pe­ asbestos materials, the Nation's water quality. mary (health-related) tion clean-up rules for riod, will be developed Agency reports. As these Regulations are being drinking water regula- tuna processing plants. within the next eighteen materials deteriorate, or if withdrawn for 64 industry tions, which went into Based on new informa- months and must be they are damaged, they groups, which affect hun- effect in June, 1977. tlon, one aspect of the adopted by the States. release asbestos fibers dreds of individual com- Under the 1974 Safe industry's clean-up reg- into the air-which in turn panies in such industries Drinking Water Act, EPA ulation is being relaxed. Resource Savings may be inhaled by school as food processing, glass has the authority to estab- EPA's action formally The Resource Conserva­ children and others. In- manufacturing, and ferro- lish and amend water pur- cancels that specific part tion Committee recently haled asbestos fibers re- alloys. This rulemaking ity rules that are neces- of existing clean-up rules sent its final report on main in the lungs and can will save money for indus- sary to protect public that limits the amount of beverage container cause lung cancer and tries by eliminating future health. tuna processing wastes deposits and nine other mesothelioma, a cancer of clean-up requirements Other issues covered in that would reduce dis- conservation-related the lining of the chest and which EPA found to be the new regulations are solved oxygen in receiving policies to the President abdominal cavities. unreasonably stringent, or designed to help small waters. and Congress. Last March, EPA asked which require further communities. The Resource Conser­ the States to inspect pub- review. vation Committee is a lie schools for asbestos­ Taste and Odor GE CYWIDE Cabinet-level committee containing materials. The Ocean Dumping EPA has issued final regu­ established by the Con­ Agency has provided Thlrty-two communities lations to guide the States An American Indian pro­ gress to study Federal in­ States with technical as­ and companies stopped in controlling drinking grams staff has been es­ centives and disincentives sistance to assess the dumping sewage sludge water contaminants which tablished within EPA's to materials conservation. degree of hazard and and industrial wastes into normally are not danger­ Office of Environmental The report is entitled select the most appropri­ waters off the United ous to human health, but Review. Working together Choices for Conservation. ate remedy. At the mo­ States during 1978. This which may make water with EPA's Regions and "While we do not ap­ ment, State compliance is the largest number of less palatable or useable. programs offices, the staff pear to be facing an immi­ with EPA's request is not dumpers to be phased out The new rules are ln- will help make Agency nent shortage of material mandatory. during any one year, an tended to deal with those programs responsive to resources similar to that "We are prepared to EPA report shows. In addi- contaminants which can the status of Indian tribes which we face with energy require immediate action tion, 38 more dumpers are cause aesthetic problems and lands and will serve resources," said EPA to substantially reduce scheduled over the next for the consumer, even as an overall Agency con­ Deputy Administrator asbestos hazards in two years to cease using though they are generally tact point for Indian en­ Barbara Blum in transmit­ schools not examined or the ocean to dispose of harmless to health. Such vironmental matters. The ting the report, "we have repaired under our tech­ their wastes. problems Include offen- establishment of this no cause for complacency nical assistance pro­ This information is con- sive taste or odor, the function formalizes EPA's about the rate at which we gram," said EPA Deputy tained in EPA's 7th An- staining of fabrics and commitment to work with consume our natural en­ Administrator Barbara nual Report to Congress plumbing fixtures, precipi- Indian tribes to protect the dowment. Our materials Blum. on the status of the tations in cooking uten- vast areas of the Nation use practices affect envi­ Agency's program to regu- sils, and the accelerated occupied by Indian Reser­ ronmental quality, energy late waste dumping in deterioration or encrusta- vations. consumption, waste gen­ waters off the United tion of pipes and plumbing eration, the balance of States. The 48-page report fixtures. trade, and other important covers activities in 1978. "The existence of a taste, odor or color prob­ lem does not always mean

OCTOBER 1979 35 p

• Administrator Douglas M. David M. Rosenbaum Cooperative Education Castle has announced the ap· He has been appointed Deputy The Western Florida University pointment of James Smith and Assistant Administrator for students who are part of EPA's Swep Davis as Associate As­ Radiation Programs at EPA. In Cooperative Education Program sistant Administrators for this post Rosenbaum will over­ {Co-op) met recently with their Water and Waste Management. see the development of a II 'supervisors: EPA officials and Their appointment follows the Agency radiation standards, as representatives of the univer­ resignation of Thomas C. Jor­ well as criteria and recommen­ sity, to review their program. ling as Assistant Administrator dations that establish guidelines The Co-op program began at for the Water program. Jorling for other government agencies EPA in 1971 and is run by Amy held the post since 1977, when to follow when developing their Kearns, Chief of Headquarters he came to EPA from the Center own regulations. He will direct Employment Center; Tom for Environmental Studies at a staff of 175 people with a Wyvill, EPA Program Coordina­ Williams College. As Associate budget of $13.7 million. Ad· tor; and Thelma Jones, Head­ Assistant Administrators, Davis ministrator Costle said, "The quarters Program Coordinator. will focus chiefly on strategy environmental and health im­ Students in the Co-op program Eckardt C. Beck development and the superfund pact of radiation exposure con­ alternate periods of related He will join the Administrator's for dealing with hazardous stitutes one of this Nation's study and work experience in a staff to help direct the Water wastes and Smith will concen­ most pressing priorities. David cooperative curriculum. The and Waste Management Pro­ trate on program operations. Rosenbaum is a radiation expert work experience is closely tied gram. Beck has been Regional The Administrator noted that who can give us excellent guid­ to the student's major field of Administrator in EPA's New these appointments will ensure ance as we deal with crucial study and provides the student York office since 1977. During strong program leadership un­ radiation programs." with learning opportunities. his tenure in Region 2 he was til a new Assistant Administra­ Rosenbaum has been a con­ The program is available to selected by President Carter to tor for Water and Waste Man­ sultant in the nuclear field since students from a variety of back­ chair the Federal Regional agement is named and given 1976, previously serving as a grounds, permitting them to test Council there. Beck was Deputy Senate confirmation. management consultant to the their career choices through Assistant Administrator for Comptroller General at the work experience. Students may Water Planning and Standards •A reception and Inauguration General Accounting Office. He receive credit toward their de­ in the Office of Water and Haz­ ceremony was held recently at helped prepare GAO studies on grees while helping to finance ardous Materials from 1975 to EPA Headquarters for the 131 the safety of liquefied energy their educations. Once Co-op 1977. Before joining EPA he people in the Agency's Wash· gases and on the health effects students have graduated, they was Deputy Commissioner of ington, D.C. offices who are of ionizing radiation. From need not compete for a rating, the Connecticut Department of part of the Senior Executive 1974 to 1976 he was Senior but are listed directly on the Environmental Programs for Service. After an introduction Staff Analyst with the MITRE Civil Service Register. several years. Earlier he helped by Bill Drayton, Assistant Ad· Corporation, where he super­ Since EPA hopes to retain to establish the State energy ministrator for Planning and vised a conference on Nuclear these Co-op students after their agency. acted as the agency's Management, Administrator Energy Centers· and directed a graduation, Personnel is In· first administrator, and was Costle, Deputy Administrator study on the threat to licensed creasing its efforts to find stu­ chief energy advisor to the Gov­ Blum, and Office of Personnel nuclear facilities. In 1973 he dents who are interested in pro­ ernor. Beck graduated from Management Director Scotty was a consultant at the U.S. tecting the environment. Pres­ Emerson College in Boston, did Campbell addressed the group. Atomic Energy Commission. ently, 35 to 40 percent of the graduate work there in com­ Each member of the Senior He has also served as Assistant Ca-op students convert to full­ munications, and earned a Executive Service received a Director, Office of Narcotics time, permanent EPA employ. Master's Degree in public ad­ membership certificate at the Intelligence in the U.S. Depart­ ees after graduation. ministration from New York ceremony. The Service is a new ment of Justice, was president University in 1972, where he is position/pay system estab­ of his own firm, Network a doctoral candidate. He at­ lished by the Civil Service Analysis Corporation. and tended the Yale University Reform Act of 1978, which worked with the Office of Emer­ Graduate School of Epidemiol­ includes all executive type gency Preparedness and the ogy and Public Health and supervisory and managerial Institute for Defense Analysis. holds a Graduate Certificate in positions in the Federal Gov­ Rosenbaum earned a BS from Air Pollution Administration ernment that were previously Brown University in 1956, a from the University of Southern in pay grades GS-16 through Master's degree from Rens­ California Graduate School of Executive Level IV. selaer Polytechnic Institute in Public Administration. 1958 and a Ph.D. from Brandeis University in 1964.

36 EPA JOURNAL Jan Geiselman Herbert Barrack Loretta Stevenson Lewis Hughes She has been named director of He has been appointed Assist­ She has been nominated by He has been appointed Acting the Air and Hazardous Materials ant Regional Administrator for EPA's Kansas City Regional Associate Administrator, Office Division in Region 2. She will Planning and Management in Office for the Outstanding of International Activities. oversee 60 employees charged EPA's New York office. In this Handicapped Federal Employee Dr. Hughes had served for with carrying out Federal laws position he will be responsible of the Year Award. Mrs. Steven­ the past year as Deputy Asso­ governing air pollution, asbes­ for analyzing the success of son was diagnosed as having ciate Administrator of the tos, pesticides, radiation, and Regional programs and integrat­ multiple sclerosis in 1969. The Office, with responsibilities for other hazardous materials. ing their activities to ensure that disease affected her mobility development of policies for Geiselman joined EPA in 1975 policies and programs are con­ balance, motor coordination. EPA's overseas activities, as an attorney in the Head­ sistent. Barrack began his gov­ hearing, and sight. She coordination with the State quar-ters Division of Stationary ernment service with the U.S. persevered with plans for a col­ Department, and other foreign Source Enforcement. In 1977 Atomic Energy Commission in IPge degree, despite the prob­ relations with U.S. Government Geiselman moved to the New 1960. He joined EPA in 1971 lems posed by her illness. Dur­ organizations, and management York Regional Office and organ­ and has held positions of in­ ing summers and college breaks of bi- and multilateral environ­ ized its first Office of Congres­ creasing responsibility with the she worked part-time for EPA mental programs. siona 1and Intergovernmental Agency. In 1975 Barrack re­ as a student aide in the Region Previously he was Acting Relations. She won an EPA Spe­ ceived an EPA Gold Medal for 7 office. In 1974 Mrs. Stevenson Chief of the Institutional cial Achievement Award in Exceptional Service. He holds received a BS in Elementary Operations Office of the 1975. Geiselman has her degree an MBA from the Graduate Education from the University National Aeronautics and Space from the University of Texas at School of Business Administra­ of Kansas. After graduation she Administration, Ames Research Austin Law School, where she tion at New York University. continued to work for the Center. Moffett Field. Calif. He received a teaching excellence Agency. "I wanted to teach received a Ph.D. from the award in environmental law. very much, but I realized I University of California at couldn't give 100 percent," Berkeley in 1972 and was said Mrs. Stevenson. "I knew Radiological Safety Officer I couldn't run down the court there. He is the author of 34 with the children when they scientific reports and manuals. wanted to play basketball. Then I decided that since EPA has been so good to me while I was in college that I would see what I could do for them. f believe it has been good for both of us." She is work leader in the Enforcement Division Data Section, and is responsible for maintaining the automated Permit Compliance System. In 1977 she received an Outstand­ ing Performance Rating. The ten Outstanding Handicapped Federal Employees of the Year will be announced later this month in Washington.

OCTOBER 1979 37 Fighting Noise Pollution noise control measures at the design stage. Cc UE fr Jm , " Germany's Federal Pollution Control Act provides for compensation in kind to own­ EPA Deputy Administrator Since noise is an important social cost ers of buildings where traffic noise from a produced by motor vehicles, certain coun­ new road, highway, or railroad exceeds the Barbara Blum Comments tries (such as the Netherlands) are consid­ limits defined in the implementing regula­ on the Problem of Noise ering charges on motor vehicle noise based tion. The regulation stipulates the required Pollution. either upon emission levels established quality of sound insulation and that the cost under test conditions or upon the vehicle's of insulation be borne by the authority responsible for the new traffic way. During the past few years, the level of estimated noise impact . These could be noise that Americans are exposed to levied as a purchase charge, an annual Dutch noise legislation will soon provide for the possibility of compensation in kind daily has increased alarmingly. Not charge, or combination of both. merely an urban phenomenon, it has The Dutch Noise Nuisance law relates (noise insulation of buildings) and in cash (acquisition of buildings and land) for spread to the suburbs and rural areas the amount of noise fee as closely as pos­ as well. The situation has become so sible to the potential nuisance of the noise noise caused by aircraft, rail traffic, road traffic, and industry. serious that the May, 1979, report on· source, and thus takes into account the the State of the Environment by the total amount of noise emission, duration of Other countries will not provide financial assistance to projects that would result in Organization for Economic Coop­ noise production. and quality of noise. It eration and Development suggests anticipates noise charges on industrial unacceptable noise. The Netherlands has enacted legislation that prohibits the con­ that if the entire U.S. population slept plants to cover noise emitted outside the with its windows open, 13 percent plant. Such charges are to be based on the struction of industrial plants, airports, and would be awakened by aircraft noise, severity of the noise impact which will be roads unless such structures conform with noise exposure standards. 40 percent by road traffic. determined through scientific measure­ According to international experts, ments taken of each plant's noise "foot­ Noise and Acoustical Education noise pollution in the U.S. is far worse print." than in other Western countries. Many OECD countries believe that educat­ Noise that can permanently damage Noise Control Enforcement ing children is the most promising long­ hearing is twice as likely to happen OECD countries vary considerably in the range solution to the noise problem. Since in the U.S. as in Canada or Japan. comprehensiveness of their noise abate­ children schooled in noise control may By 1985, it is possible that the num­ ment legislation and in the extent to which educate their parents in noise abatement. ber of people exposed to harmful control and implementation are centralized. this approach has short-term benefits as levels of noise could triple or even In fact, while some countries have found well. quadruple because so many live near that legislation which sets national stand­ The Swiss Institute for Research into the major transportation facilities. ards is most effective, others have discov­ Built Environment prepares school courses Considering that the noise problem ered that their most positive noise abate­ on environment protection that include has worsened in the past 1 5 years, the ment results have come when local noise control. Swiss police courses on road task of effectively controlling It be­ authorities have had the power to establish traffic focus primary school children's at­ comes urgent, especially in view of limits. tention on the need not to cause noise. The what we a Iready know about the A good ex11 mple of local enforcement is French government plans to distribute, range of adverse health effects of the United Kingdom's system in which through the national education service, noise. The situation cries out for local authorities can establish noise RbAte­ booklets educating children about noise, effective Federal action. We also ment zones where increasing noise levels including the need for young motorcyclists need viable State and local noise pro­ from inciustrial. commercial, or entertAin­ to respect other people's desire for peace grams. Even more important are effec­ ment sites are lowerina thA au11 litv of the and quiet. tive public education programs that environment. Sur.h est<1blishments must Public education is at the heart of a I most will help the American people recog­ first not increase their noise level and later all the noise abatement proposals made in nize the dangers and what can be the OECD report. To date, public awareness take steps to reduce it. done about them. Without public in­ Of concern to" II countries is that en­ of noise and public commitment to noise re­ volvement, no noise program can be forr.ement be as simple. inexnAnsive. and duction have been modest. In urging that successful. The Environmental Pro­ strniohtforward as possible. Sinr:e police all possible low-cost measures be taken to tection Agency, realizing the need for worklo11ds and bur!get constrictions are increase public awareness and commit­ Federal, State, and local action and ment, the report concludes with the state­ often cited as problems in noise abatement the importance of public awareness, enforcement, some OECD countries have ment: will be using the authority of the " By making people more aware of their started using civilians to enforce noise Noise Control Act to launch meaning­ laws, and have adjusted the laws if neces­ rights. of the technical problems and of the ful programs. sary to grant the civilians appropriate progress with research and development, Noise is not something which has authority. low-cost measures might pave the way for to be tolerated as a consequence of more stringent legislation as controls which the modern world. The U.S. is joining might otherwise be considered unaccept­ the Western Eu ropean countries to Compensation for Unacceptable able. They can also make possible better Noise-Control Damage develop innovative solutions to the living conditions by making people more world noise problem. There is plenty While OECD countries believe that com­ noise conscious." D we can do, and a role for each of us to pensation for damage caused by noise play in the effort. It's a responsibility should be a last resort, some countries have Dr. Ariel Alexandre is an Urban Environ­ none of us should take lightly. found that this tactic motivates public de­ ment and Land Use Specialist in the velopers to consider ways to soften noise Environment Directorate of the OECD. generated by public works. The potential Opinions expressed in this article are cost of compensation is an incentive both those of the author and do not necessarily to reduce noise at its source and to improve reflect the views of the Organization.

38 EPA JOURNAL The Sound of Silence attached to losing one's hearing, to wearing Continued from page 19 a hearing aid. I was no exception. But be­ cause I va lue good hearing, I am no longer speaker at a convention or their table a reluctant hearing aid wearer. I continue partner at a company dinner because of the to enjoy the marvelous sounds of life, interference from other sounds are at a 130 thanks to hearing help." distinct disadvantage. They can become I Hearing experts point out however, that reluctant to take part in activities necessary 120 amplification will not completely correct for a successful career because of the all hearing losses. In some cases increasing insecurity caused by impaired hearing. cCD the sound can be a source of annoyance A recent EPA report, "Occupat.onal ·.:: because of a phenomenon called recruit­ Hearing loss: Worker Compensation Under : ment. Recruitment is abnormal sensitivity State and Federal Programs," notes that :r: 0 100 to sounds in a certain range that occurs in occupational hearing loss can have a pro­ 1- 95 people with hearing impairment. People found effect on social and work life. The 3 with recruitment reach a pain level with report notes that one study of weavers, who e... 90 noise much sooner than most. even unaided, had a slight hearing handicap by U.S. :r:" and a hearing aid can compound the prob­ medical criteria, showed that the vast lem. This causes difficulty in finding the majority of the workers had trouble hearing " comfort range" for hearing aids. An aid in public, talking with friends, or con­ that is uncomfortable will not be used. and versing with strangers on the phone. Most does no good sitting in a drawer. had seriously restricted their social lives It is important for people who already and more than half used lip-reading to aid have hearing losses to protect their remain­ understanding. ing hearing. Even if you have lost some Humanitarian Helen Keller, who was hearing, continued exposure to loud noise both blind and deaf due to a childhood dis­ can erode it further. lower sensitivity can ease. said that of the two handicaps she mean that the hearing loss is slowed but felt tb.e loss of her hearing most keenly still occurs. because it shut her off from human social Another problem that can accompany interaction. hearing loss is that of head noises or A worker who can hear well enough to do tinnitus. Many people notice a ringing in the job at hand may be cut off from promo­ their ears after periods of exposure to loud tion or transfer possibilities because of noise. The ringing is tinnitus, which scien­ impaired communication ability. Some tists believe usually indicates some damage researchers feel that the level of noise in a to the auditory pathway. worker's job can serve to mask the serious­ After exposure to loud noise the ringing ness of a hea ring loss. A man who says, noises will usually fade and normal hear­ "I can talk to the guys at work OK," may be ing return within several hours. However, discounting the limited nature of much ~ hearing researchers warn that with re­ workday conversation where brief ex­ peated and prolonged exposure it takes changes occur in tones raised to carry over 0 longer for the ears to recover, and a per­ the noise of machines. Such persons can \ manent impairment in hearing can occur. find themselves totally lost in conversations " The continued presence of tinnitus is that involve a large group of people and get ) very disturbing to many people. While ear beyond the "How are you doing? Nice day" Q !); noises are not always caused by hearing I stage. I loss (they can be a sign of arteriosclerosis Hearing conservation workers note that Soum Le rm decibels) - or Meniere's disease). they often accom­ people with hearing losses can have feel­ pany it. The American Tinnitus Association ings of isolation that are directly related to reports that some 36 million Americans the degree of difficulty comprehending con­ Hearing Institute, who suffered hearing suffer from ringing, buzzing, and roaring versation. The inability to hear or under­ impairment from depth charges he was sounds in their heads. Such an affliction stand what is going on around them can exposed to in the Coast Guard during can interfere with sleep, distract from con­ lead people to withdraw socially or to be­ WW II. He says ' 'I've made a career out of versation, and generally wear out its hap­ lieve that others are talking about them. entertaining people by butchering the Eng­ less victims. Some sufferers obtain relief People with certain degrees of percep­ lish language. It's very funny for people with masking devices. tiny receivers that tive hearing loss do not hear normal sound who catch all the lines. But it's not for fit into the ear like a hearing aid and even with amplification. What they hear people who suffer from a hearing impair­ emit sound sometimes called " white can sound like a short-wave radio that is ment. And what they miss hearing can be noise," which is somewhat like hissing, to not properly tuned in. Gaps in sound, dis­ the difference between a life of happiness mask or cover up the intruding internal tortion, and muffling accompany the trans­ and one of withdrawal and loneliness." noise. But many people continue to suffer mission of sound. This can make it very Former Governor George Wallace of with "racket inside the head" in addition to difficult for them to translate the noises Alabama has a hearing impairment. He their hearing impairment. they hear into something meaningful. says, " Loss of hearing is not only an in­ EPA is working with a number of organ­ One point of view on these problems is visible handicap, but it is burdened with izations to present information to the public expressed by comedian Norm Crosby, centuries of half-truths and outright myths. Continued Natioral Honorary Chairman of the Better It is often mistakenly associated with se­ nility, yet some three million school-age children suffer from hearing problems. Many people feel there is a terrible stigma

OCTOBER 1979 39 about the hazards of noise and to reduce which they find themselves, they environmental noise so that noise-induced Hearing would have to have had some prior hearing impairments might be pre.vented. use or knowledge of protectors and If such efforts are successful, perhaps fewer Protectors the perceived variations in their people wi II find themselves in the predica­ People who wish to conserve their ability to reduce noise; have had the ment of writer Jonathan Swift. the author of hearing in noisy situations have had aid of someone directly involved in a Gulliver's Travels. who in his later years to choose protection from among the hearing conservation program; or described himself as " Deaf, giddy, help­ many and various types of protective have done some personal library less, left alone, To all my friends a Burden devices that are both readily avail­ research. However, approximately grown." 0 able and relatively cheap. Protective one year from now, all protective devices have widely varying noise­ devices that are sold wholly or even Further information on hearing impairment reducing effectiveness. in part on the basis of their effective­ available from: Earplugs fit into the ear canal to ness in reducing noise will have a American Council of Otolaryngology block the entry of sound, and are label on them stating-in decibels­ 1100 17th St. NW found as moldable, putty-like material the noise reducing effectiveness of Washington. D. C. 20036 that can be re-used several times. the particular model of protector. The American Speech-Language-Hearing ear-down that is intended to be used This will occur because EPA has Association only once, universal fit pre-molded issued a regulation requiring manu­ 10801 Rockville Pike plastic available in several sizes, and facturers of hearing protectors to uni­ Rockville, Maryland 20852 custom-fitted pre-molded plastic in­ formly test and label their products. American Tinnitus Association serts. The label will have on it the P.O. Box 5 Ear-muffs fit over the entire outer Noise Reduction Rating for the Portland, Oreg. 97207 ear and cling tightly to the head to particular model of protector. and Better Hearing Institute block out noise, and are basically the range of ratings for all presently 1430 K St., NW Suite 600 two cup-like covers joined by a available protectors for the purpose Washington, D. C. 20005 metal or plastic headband. of product comparison. The National Information Center for Quiet Ear-caps are a combination of the The intent of this regulatory action Box57171 two previous devices, and fit into is to provide notice to a prospective Washington, D. C. 20037 and on the ear. user of these devices of the effec­ Up to the present time, for people tiveness of a device before it is pur­ chased or used, and that others are Chris Perham is Rn A ssistsnt Editor to choose hearing protection that is of EPA Journal. adequate for the noise situation in available.

Noise Regulations Truck noise levels appear to be dropping as Unfortunately, regulating major manu­ a result of the new product regulations facturers at the State and local level Is be­ C( ntmued fMm page which have been in effect since 1968. coming increasingly difficult. The use of "bluffing tactics., which work initially when How Effective Has EPA Been in decisions are easy, prove to be less effec­ tive as standards become more stringent Legislature to consider in an orderly Regulating New Noise Sources? and serious technological and economic manner any needs that might arise for Unfortunately, the philosophy adopted questions are raised. In recent years, State future revisions of the time-table. by State and local programs as described and local governments have been backing The 1988 requirement of 70 decibels for earlier has reversed itself in EPA. As a down. For example. new motor vehicle all classes of new vehicles was included result of legal and administrative problems standards have been holding at the 1975 because it seemed to be an acceptable limit we see industry holding EPA's feet to the California levels with further reductions below which further quieting of vehicles fire until they back off enough on their doubtful. would not be necessary to eliminate gen­ standards to protect industry. EPA instead Only the Federal Government. with EPA eral complaints. Information was not avail­ of industry has the onus of proving whether in the lead role, has the capability of ade­ able to indicate that far in advance whether or not a standard is technologically and/or quately addressing the technology and it would be an acceptable low limit for the economically feasible. As a result we're economic issues and establishing an appro­ public and whether it would be economical­ seeing EPA propose and promulgate stand­ priate accounting system for compliance. ly feasible for the manufacturers. ards which may be weaker than some of In order to more effectively regulate, EPA The 70 decibel limit was not technical­ those currently enforced by State and Local should: ly feasible with then-current type of trucks, noise control agencies. In such cases these tires, and engines. but it would allow manu­ standards would do little more than "lega 1- 1. Concentrate its limited resources on the facturers a lead time of at least 1 6 years to ize noise pollution" and preempt States and most important products. attempt to meet the goal. This philosophy cities from dealing with the problem. 2. Be willing to force industry to expend of "holding industry's feet to the fire" until money in search of "quiet" technology. and they either come up with the solutions or How Can Noisy Products Best 3. Base future noise emission standards can convince the regulatory body why the more on public hea Ith and welfare and less solution can't be reached has proven to be Be Controlled in the Future? an effective approach. As a matter of fact Many noise control officials feel that State on economic impact. the little progress that we have made to and local governments can best regulate The fate of our Nation's acoustic envi­ date in the area of new vehicle noise control new product noise. Their feelings are based ronment is heavily dependent upon a strong is primarily the result of a few strong pro­ largely on the initial success of State and Federal new product noise regulatory pro­ grams which weren't willing to accept cur­ local regulatory efforts and perhaps more gram-without which we are fighting a rent vehicle noise levels as acceptable. out of frustration with the lack of a strong losing battle. O Federal program.

40 ofloU,S . GOVERNMENT PRINTIN G OFFICE: 1979 0-620-o64/9REGION 3-1 EPA JOURNAL Above: Copies of this poster will be available late this year from the National Information Center for Quiet, Box 57171, Washington, D. C. 20037 (See story on P. 4 .J

Back cover: The sound level at rock con­ certs is often high enough to endanger the hearing of the musicians and audience.