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7. Noise

7A. Present Situation

Lisbon a pleasant romantic city

With a territory of 85.87km2 and a residential population of 547,733 (2011 census), Lisbon is

the centre of a 2.8 million inhabitant catchment area with high commuting fluxes, half of

whom get to the city by car (2/3 of private vehicles in the city come from surrounding areas).

Despite comprising a considerable urban area with many sources of noise, due to its long

history of urban design Lisbon is well known for its peaceful, romantic squares, small lanes,

gardens, corners, and variety of spaces that allow for quiet reflection.

Indicator

Unit Year of data

Population exposed to total noise levels of Lden

above 55 dB(A)

55 % 2011

Share of population exposed to total noise levels of Lden above 65 dB(A);

18 % 2011

Share of population exposed to total noise levels of Ln (night noise indicator) above 45 dB(A)

60 % 2011

Share of population exposed to total noise levels of Ln (night noise indicator) above 55 dB(A)

22 % 2011

Percentage of citizens living within 300m of quiet areas.

13 % 2012

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Figure 1 – Lisbon´s gardens

In an urban area such as Lisbon the high concentration of social and economic activities

coupled with increasing transport availability and accessibility have transformed urban

areas into living spaces where preservation of the environment is particularly fragile.

Thus, noise becomes ubiquitous, whether from transport, collective or personal

equipment which is part of professional, leisure, or everyday living activities.

Noise Abatement in Lisbon

In the 2000 noise map, almost 50% of the municipal area was exposed to values of

LAeq of 65dB(A) or more. Over the last 5 to 10 years this value has been

substantially reduced. The noise map currently indicates that only 18% of the area is

above a Lden value of 65dB(A). Even though these aren’t directly comparable indicators

(LAeq and Lden), there is a notable decrease in noise in the city.

Sources represented on the map were: road traffic, air traffic, rail traffic and other forms

(such as nightlife areas).

The responsibility for preparing the noise map in terms of aircraft and railway noise

arises exclusively from operating entities, which Lisbon Municipality has undertaken to

involve in its Strategic Noise Map.[2]

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The distribution of sound levels in the area shows that for Lden, 20% of the municipal

area is above the threshold value. As we can see only 5 % of the area is 10 or more

dB(A) above the threshold (65dB(A)).

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Considering Ln indicator, the area above threshold (55dB(A)) is larger- approximately 41% -

of which 23% is 10dB(A) or more.

Table 1 – Estimation of population exposure of Lden 4m above ground level and “most exposed façade” to different noise sources

Table 2 - Estimation of people exposure of Ln 4m above ground level and “most exposed façade” to different noise sources

Correlating the noise map with resident population reveals that 18% of the population is exposed

to levels higher than the regulation for Lden (Lden > 65), where 14% is traffic noise. Considering

values of Lden > 55, the exposed population increases to about 55%, in which case 45% of traffic

noise (table1).

Lden Global Noise Road Noise Train Noise Aircraft Noise Other

sources

Lden ≤ 55 243974 300641 538658 480468 544393

55 < Lden ≤ 60 98342 85383 4398 23369 242

60 < Lden ≤ 65 103355 80540 979 31722 143

65 < Lden ≤ 70 72270 57756 792 7740 42

70 < Lden ≤ 75 24710 18465 0 1525 4

Lden > 75 2175 2042 0 2 2

LN Global Noise Road Noise Train Noise Aircraft Noise Other

sources

Ln ≤ 45 218961 274314 536660 474459 544004

45 < Ln ≤ 50 102913 92694 4912 23486 388

50 < Ln ≤ 55 101488 83297 1987 31740 246

55 < Ln ≤ 60 82676 64163 819 12867 140

60 < Ln ≤ 65 32738 25375 448 2230 41

65 < Ln ≤ 70 5789 4785

44 4

Ln > 70 261 198

2

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Accordingly, table 2, t 22% of the population is exposed to levels above the legal limits (Ln> 55)

where 17% comprises traffic. In values of Ln > 45, the exposed population increases to

approximately 60%, where 50% is linked to traffic.

Lisbon has a moderate number of inhabitants exposed to noise levels of Lden and Ln above

55dB(A) and 45dB(A) respectively, due an overestimation of population exposure to the lower

noise levels and a strategic noise map [2] taking into account all secondary and tertiary roads

as noise sources where default traffic flow volumes were attributed.

Improved Sound areas

Road traffic is thus the major cause of city noise pollution. Reducing/controlling car traffic on

the main streets, it is the most difficult challenge, for which focused strategies are gradually

being extended over the entire city

The methodology for delimitation of quiet areas falls within the 30Km/h zones. The new Lisbon

Master Plan (PM) identified traffic calming zones[5]. Bairro do Charquinho [6]), was the first

of 6 zones in consolidated residential neighborhoods transformed into a 30km/hr Zone in

2013, marking the launch of the strategic project "30 Zones - The street belongs everyone”

According to the law, quiet areas must be exposed to a Lden value equal or less than 55 dB (A)

and Ln equal or less than 45 dB (a) as a result of all existing noise sources.

Identification of 12 quiet areas.

Despite these formal quiet areas, the municipality has been working to increase the area

exposed to low noise levels with a holistic approach taking advantage of green areas as low

noise level zones in the belief that this will be a guarantee of a new urban development for the

inhabitants of urban centres.

At present, about 25% of Lisbon (much of them green zones) has noise values compatible with

the quiet zones. This represents 89% of Lisbon inhabitants who live within 300m of a “low

noise level zone” which can be equated to a quiet zone.

The Lisbon City Council has been investing in its soft and E-mobility policy: 1/3 of the total

fleet are electric, its network of bicycle lanes is constantly being extended as are 30km/hr

Zones, the creation of Reduced Emission Zones, the promotion of car sharing/scooter sharing

[16][17] and the imminent introduction of shared use bicycles[18]. At the same time, the

municipality is providing leverage in the use of public transport and soft mobility modes.

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7B. Past Performance

History of Lisbon noise projection and acoustic research

The Lisbon noise map was rolled out in 2001 in collaboration with the IST Centre for Analysis

and Signal Processing. It was the first noise map in Portugal and is continuously updated.

In 2008, following the Decree-Law 146/2006, the Municipality prepared a new noise map,

currently in effect, using three reference periods (day, evening and night) and indicators Lden

and Ln.

Since then the noise map has been used as the basis for developing acoustic studies for

Urbanization Plans and to support technical measures to minimize noise, such as studies for

locating noise barriers, for example:

Acoustic characterization of several arteries

Acoustic survey of the surrounding the Marquês de Pombal road tunnel;

Acoustic characterization of “Eixo Norte-Sul” freeway for implementing noise barriers;

Noise reduction and monitoring plan for “2ª Circular” freeway.

During this period Lisbon prepared a proposal for classification of acoustically sensitive and

mixed areas according to the legal requirements of Law 9/2007, integrated in the Master Plan

(MP)[3]

Acoustic Zoning

In the process of acoustic zoning, the municipal areas are defined as sensitive or mixed.

In Lisbon, the entire Municipal area was classified as a mixed zone since all the city has mixed

uses such as housing, schools, recreational areas, commercial and services areas.

Table 3 – Exposure limit values for the different acoustic areas

It is important to note the practical results of these ratings, for example, if the areas are

classified by usage, exposed to outside environmental noise exceeding the limit values or, if

they should be the subject of Municipal Plans for Noise Reduction under municipal

supervision.

Zone Type Lden Ln

Mixed ≤ 65 ≤ 55

Sensitive ≤ 55 ≤ 45

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The mixed classification for the municipality is a viable approach to a European capital whose

intention is to adopt effective measures for noise reduction in a realistic and practical way.

In 2016, the municipality started to update the strategic noise map(2008-2018) to fulfill this

objective, doing 40 measurements in hotspots as well as traffic counts all over the city.

Awareness and Environmental Education actions

These actions are carried out by the entities responsible for operating, managing, and

maintaining transport infrastructure to communicate prevention measures and improve on

environmental noise quality, (e,g, REFER- rail infrastructure[10], ANA–airport authority[8][9],

LUSOPONTE–bridge authority, schools and others private services) through environmental

education programs, namely as part of the World Environment Day, Tree-Day, Earth-Day and

European-Mobility-Week, involving thousands of participants[11][12]

Figure 4 – European Mobility Weeks (2014, 2015, 2016,2017)

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Preservation of good acoustic urban environments

The Lisbon MP has prioritized the creation of traffic calming zones[6], in residential and other

neighborhoods in order to:

Protect neighborhoods from unwanted crossing traffic;

Reduce noise and air pollution;

Ensure road safety for all, particularly pedestrians and cyclists;

Reduce occurrence and severity of accidents.

Despite the 12 quiet areas which have been identified and preserved in the Action Plan(AP),

the city council has been working to increase low noise level zones. At present about 22 km2,

much of it Urban Green Parks, have noise values compatible with quiet zones.(e.g.Urban Park

Vale de Chelas with 15ha green area)[19]. One of the largest low noise areas is the Lisbon

FOREST PARK. With around 900ha of vast areas of diverse forest, it offers great potential for

passive recreation.

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Figure 5 – Several sustainable and safety interventions to improve acoustic environments

Noise reduction measures

Lisbon has carried out initiatives in several locations that have led to an immediate

improvement in the sound environment:

-Changing pavements and implementing noise barriers (almost 4km of porous asphalt and

5km of noise barriers);

-Restricted access to residents only in 6 historic districts

-Implementation of a Low-Emission-Zones[7](30% of the city area)

-Speed Control on various city arteries (approximately 20 sites);

-Implementation of 27 slow traffic zones[5];

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-Reshaping streets to promote soft/active mobility

-Increasing the cycle path network (60km implemented, 90km more following totalling

150km)

-Reshaping rail links with jointless rails;

-Differentiated parking pricing in the city center;

-Increasing green areas (20% more by 2020).

Figure 6 – The most recent interventions in several areas of the city

Lisbon Noise Strategic Plan[1]

A strategy plan for noise in Lisbon was initiated under the MP to ensure the goals of noise

reduction:

Promoting quality of life amongst citizens, reducing discomfort and health problems

Reducing the number of people exposed to noise levels above what is allowed by law;

Identifying quiet areas, promoting intervention strategies aimed at safeguarding and

expanding these areas;

Articulating and setting policy for road, rail and air traffic network managers.

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Figure 7 – Lisbon Action road map 2015-2020

Noise budget

The Noise Action Plan budget is €9M divided into three phases of five years each. In addition,

the actions which have taken place over the last 5 years have had an estimated cost of € 8M.

These investments, supported by the Municipality, will have a positive impact on family

budgets and on public administration costs, in expenses related to health and social support.

Lisbon was the first European capital to implement a Public Participatory Budget (PB) with 5% of the

municipal investment budget (€2.5M), enhancing and strengthening the connection between citizens

and their municipal government, A collaborative process, providing citizens with effective decision-

making power to make proposals for their city and voting for priority projects

Several highly successful projects over the last 6 years have been directly related to noise issues. The

last, in 2016, intends to create an On Line Platform Against Noise. [14]

Regulation of Operating Hours of Retail and Service Establishments

The principle reason for the revision of the Regulation of Operating Hours of the Retail and Service

Establishments is the reconciliation of conflicts of interest. The municipality intended that "the

economic freedom of traders and the right to rest of the residents" do not continue on a collision course

but be resolved by consultation.

Establishments operating after 11:00 p.m. with music - be it amplified or acoustic- are required to

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soundproof the space, make an acoustic assessment to prove compliance with noise legislation and

ensure that doors and windows are closed. These establishments are still obliged to place a sound

limiter with registration, which must be approved by City the Council before being installed, allowing

monitoring of noise in real time. With these new rules the Municipality will be able to deal with the

noise problems in nightlife areas.[15]

7C. Future Plans

The future of noise in Lisbon

The Action Plan (AP) is broader and more ambitious than a simple noise reduction plan.

It aims to define measures to reduce environmental noise and eliminate legal irregularities,

and to define preventive measures to preserve acoustic environment quality, in particular

through the maintenance and extension of "quiet" areas.

The AP focuses particularly on major environmental noise emitting sources, namely road, rail,

and air traffic, and other sources of relevant permanent noise activities.

Nights are the most critical period for noise exposure and the criteria to determine

intervention priority areas were based on Ln. Priority areas are those where the population is

most exposed to higher values (Ln>60dB(A)).

The identification of areas was based on the main arteries, which themselves constitute a

source of environmental noise, or by the meeting of several interconnected routes where

intervention would include a strategy at the block or district level.

The AP was developed with interdisciplinary collaboration between Municipal departments

and/or external partnerships, including NGOs and resident associations.

The draft AP was available for consultation on the internet. The proposal was publicly presented

on January 9th, 2014.

The Public Weighting Discussion Report includes all shared information (suggestions,

comments, and complaints) received in public consultation.

In terms of aircraft and railway noise, the preparation of the AP is exclusively the responsibility

of the operating entities, so these measures can be included in the Lisbon Airport Noise Action

Plan, and the REFER Noise Action Plan. Both plans are in preparation.

As the main source of noise in Lisbon is road traffic, each route is evaluated in terms of the

number of people exposed to different classes of exterior environmental traffic noise.

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29 zones were defined, accepted measures for noise reduction applied and effectiveness of

the proposed measures quantified.

Figure 8 – Action Plan Matrix, A Lisbon Noise Action Plan

Impact reduction Forecast

The tables exemplify existing soundscapes improved with the application of measures relating

to Lden and Ln.

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Figure 9 - Forecast reduction in the share of population (rounded to hundreds) exposed to

different classes of values of Lden in dB(A) and of Ln in dB(A) for noise road traffic

After AP implementation, the class over 70dB(A) is not in use for the Ln indicator.

Between 65 and 70dB(A) a reduction of 77.1% is observed.

Since the primary objective of the AP is in Ln exposed to levels exceeding 60dB(A) population,

the measures have led to an improvement for 46% of the exposed population.

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There was a 52% reduction of the population exposed to higher values of Lden over 70dB(A) and

51% of people exposed to Ln values over 60dB(A) for the priority intervention areas.

Figure 10 – Distribution of the number of inhabitants in the total study areas, exposed to

different classes of indicator values Ln in dB(A)

Figure 11 – Distribution of the number of inhabitants in the total study areas, exposed to different classes of indicator values Lden in dB(A

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Holistic/qualitative approaches to the acoustic environment

These results indicate that pavement changing and controlling speed are effective

measures in reducing individual exposure to noise. Despite not solving all of the

identified conflicts, these two measures represent significant improvements in

soundstage areas, with elimination of receivers in the higher exposure class, and a

significant reduction in the number of people exposed to high noise levels.

The Municipality intends to reduce the speed limit to 30km/h in residential areas and

around schools - Lisbon’s Pedestrian Accessibility Plan. Although some districts have

already adopted new rules, such as Carnide, Arco do Cego, São Miguel, Charquinho, and

Encarnação, Lisbon Municipality aims to extend these traffic control measures throughout

the entire city.

In recent years the Municipality has made efforts to preserve and restore several green

spaces in the city and some of these have significantly improved the acoustics of these

spaces. Until 2020 there will be a 20% growth in green areas in the city.

To achieve an optimum outdoor acoustic environment, a holistic view in which health and

wellbeing are improved is needed within sound planning. For planning processes related to

urban acoustic environments to be successful, specialists are required to have broad research

expertise covering areas such as acoustic prediction methods, noise control, soundscaping, city

and traffic planning.

One good example of this approach is the revitalization of “Quinta do Bom-Nome”. The

project envisages the construction of new recreational areas and informal sports lawns,

planting trees and traffic calming measures, winning the 2010/11 Lisbon Public

Participatory Budget.

The intervention took place on two fronts: revitalization of urban space and surrounding

green areas, rearranging road and pedestrian circulation; installing new playground

equipment, restructuring of the Condes de Carnide Avenue and CRIL freeway intersection

framework.

The results reshaped existing roads within the district reducing excessive flow velocities

for residential areas, with a natural green central area and longitudinal parking,

increasing road safety and including shaded areas. Equipment for youth and a children’s

playground was also installed.

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Other plans directly connected with noise

Pavimentar Lisboa is one of the plans for the

improvement of road infrastructure in the city. By 2017

the city aims to pave over 150 streets, one third with a

porous surface. More than 110 kilometres of road will be

rehabilitated, mostly with repaving and about a third to

be rebuilt, an investment estimated at 25 million euros.

[13]

6D. References

1. Plano de Ação de Ruído de Lisboa, Junho de 2014

(http://www.cm-lisboa.pt/viver/ambiente/ruido/plano-de-acao-de-ruido)

http://www.cm-

lisboa.pt/fileadmin/VIVER/Ambiente/capital_verde_europeia/6_qualidade_acustica/plano_aca

o_ruido__julho_2014.pdf

2. Mapa Estratégico de Ruido da Cidade de Lisboa, Maio de 2010

(http://www.cm-lisboa.pt/viver/ambiente/ruido/mapas-de-ruido)

3. Regulamento do Plano Diretor Municipal de Lisboa, Agosto de 2012

(http://www.cm-lisboa.pt/viver/urbanismo/planeamento-urbano/plano-diretor-municipal)

4. Plano de Pormenor de Salvaguarda da Baixa Pombalina, Março de 2011

(http://www.cm-lisboa.pt/viver/urbanismo/planeamento-urbano/planos-eficazes/plano-de-

pormenor-de-salvaguarda-da-baixa-pombalina)

5. Zonas 30

(http://www.cm-lisboa.pt/viver/mobilidade/zonas-30)

6. Zona 30 do bairro do Charquinho

(http://www.cm-lisboa.pt/noticias/detalhe/article/bairro-do-charquinho-e-zona-30)

7. Zona de Emissões Reduzidas

(http://www.cm-lisboa.pt/viver/mobilidade/zonas-emissoes-reduzidas)

8. Resumo não técnico do plano de ações de gestão e redução de ruído do aeroporto de lisboa

(https://www.ana.pt/SiteCollectionDocuments/Sobre%20a%20ANA/Sustentabilidade/Plano-

de-Acoes-de-Gestao-e-Reducao-de-Ruido-Resumo-Nao-Tecnico.pdf)

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9. Mapa de ruido do Aeroporto de Lisboa

(https://www.ana.pt/SiteCollectionDocuments/Sobre%20a%20ANA/Sustentabilidade/Mapa_d

e_ruido_Aeroporto_de_Lisboa.pdf)

10. Relatório de Sustentabilidade, Refer 2012

(http://www.refer.pt/MenuPrincipal/REFER/Sustentabilidade/Relatoriosdesustentabilidade.as

px)

11. Semana europeia da mobilidade - dia europeu sem carros, 2013 em Lisboa

(http://www.cm-lisboa.pt/noticias/detalhe/article/semana-europeia-da-mobilidade-dia-

europeu-sem-carros)

12. Semana europeia da mobilidade 2014, em Lisboa

(http://www.cm-lisboa.pt/noticias/detalhe/article/semana-europeia-da-mobilidade-2014)

13 Pavimentar Lisboa

(http://www.cm-lisboa.pt/pavimentar-lisboa)

14 Plataforma Online Contra o Ruído

(https://op.lisboaparticipa.pt/projetos-vencedores/57e29bd08ed5d50800224194)

15 Novo Regulamento de Horários

http://www.cm-lisboa.pt/noticias/detalhe/article/novo-regulamento-dos-horarios-de-

funcionamento-dos-estabelecimentos-de-venda-ao-publico-e-de-prest

16 Ecoltra - Scooter sharing project

https://www.ecooltra.com/en/

17 Electric Car sharing project

https://www.drive-now.com/pt/pt/lisbon

18 Gira Bicicletas – bike sharing project

https://www.gira-bicicletasdelisboa.pt

19. http://www.cm-lisboa.pt/equipamentos/equipamento/info/parque-urbano-do-vale-de-

chelas