TO:Works and Utilities Committee
FROM:Commissioner of Works and Emergency Services
DATE:December 22, 1998
SUBJECT:Lester B. Pearson International Airport (LBPIA) - Noise Monitoring Study
Terms of Reference and Cost Estimate
Purpose:
To provide a study design, in the form of a terms of reference, to address the concerns of
Toronto residents within the Lester B. Pearson International Airport Operating Area, with
respect to the noise impact resulting from the Airport operation.
Funding Sources, Financial Implications And Impact Statement:
Funds in the amount of $25,000.00 will be required to be included in the 1999 Budget of
Works and Emergency Services. All or a portion of the cost may be recoverable from the
Greater Toronto Airports Authority should they agree that this work would be of value to their
Noise Management System work programme.
Recommendations:
- That the Commissioner of Works and Emergency Services be authorized to engage a
consultant to carry out a study as outlined in the proposed terms of reference shown in this
report at an estimated cost of $25,000.00 subject to approval of Council and the 1999
Budget process.
- That the Greater Toronto Airports Authority be requested to reimburse the City for this
expense.
Council Reference/Background/History:
The Municipal Grants Review Committee had before it a report (September 15, 1998) from
the Commissioner of Works and Emergency Services responding to a request of the
Committee to report on the most appropriate way to monitor and address the noise problems
in Etobicoke resulting from Lester B. Pearson International Airport, and recommending that:
(1)"the City's Noise Section of the Works and Emergency Services Department develop
terms of reference and a cost estimate, with input from the Etobicoke Federation of
Ratepayers' and Residents' Associations, to conduct an assessment of noise impacts from
Lester B. Pearson International Airport, and that the Commissioner of Works and Emergency
Services submit such terms of reference and cost estimates to the Works and Utilities
Committee before the end of 1998; and "
(2)funds for this study be considered in the 1999 Operating Budget submission of the Works
and Emergency Services Department.
The report could not be prepared for the December 2, 1998 Works and Utilities Committee
meeting because there was insufficient time allowed to gather the information necessary in
order to develop a suitable study design and cost estimate. In addition, because of the labour
dispute at the Airport from October 2, 1998 to November 9, 1998 Greater Toronto Airports
Authority staff were not available to discuss the matter.
Comments:
The issue of noise impacts due to airport operations has been a major area of study worldwide,
for a number of years. As is evident with other noise issues, the development and placement
of sensitive land uses adjacent to the various airport noise sources has resulted in numerous
concerns both by residents and Airport Authorities. Different strategies have been developed,
depending on the circumstances, and each is unique to their geographic area. The challenge is
to determine the most effective measures available which would be economically and
technically feasible to balance the needs of the surrounding population adjacent to LBPIA and
those of the Airport Authority.
The Co-ordinator of the City's Noise Section has met with members of the Etobicoke
Federation of Ratepayers' and Residents' Associations (EFRRA) to discuss their concerns and
to evaluate a terms of reference for a study which would satisfy their objectives. Although
general agreement has been reached on the content of the terms of reference, there is a
concern with respect to the timing of the study. Based on the normal budget process, subject
to approval of City Council, funding would not be available until April or May 1999 and the
study could not proceed until after that time.
Terms of Reference for Review of Technical Aspects of Noise Impact of the Pearson
International Airport have been developed as detailed below:
- Review existing documentation and sound monitoring equipment and procedures operated
by the Greater Toronto Airports Authority at the Pearson Airport and verify baseline
conditions from which to evaluate potential impacts on affected areas of reception. Provide
a list of deficiencies for the existing airport monitoring system and assess the technical
merits of any proposed plans to upgrade the monitoring equipment.
- Establish the applicable state of the art guidelines; namely, federal, provincial and
municipal noise limit requirements and contact appropriate government agents to
substantiate both environmental criteria and the degree of effort given to ongoing research
on the subject.
- Prepare acoustic prediction models and conduct live measurements of the Pearson
activities to assess near field and far field emissions at the affected receptor areas. The
majority of effort will be directed toward take-offs, landings, roll-back manoeuvres, turning
movements, low level flying as well as taxiing. Conduct measurements at affected areas to
substantiate modelling results.
- Measure and model/predict building vibration amplitudes as a result of low frequency
noise impact and to assess the likelihood of annoyance as well the potential for damage to
lightweight structural materials in dwellings and/or historical buildings.
- Perform a literature search to verify and support the state of the art into research of
appropriate descriptors for assessing aircraft noise impact (ie., NEF, Leq, Lmax, SEL, Ldn,
EPNL). In addition, also conduct a literature search on the perception of vibration due to
low frequence sound from aircraft with appropriate (ie., dBA vs. dBFlat) guidelines issued
accordingly.
- Assess the sound propagation models used by the airport authority(ies) and endorsed by
research organizations for a variety of weather conditions. Review the noise emission
testing procedures of individual aircraft. Illustrate noise impact significance with an octave
band intrusion analysis.
The above terms of reference generally outlines the steps necessary in order to evaluate the
"state-of-the-art" of the existing Monitoring System. It is very likely that the Greater Toronto
Airports Authority would undertake similar work at some time in the near future in order to
keep pace with current practice in the industry.
Conclusion:
The estimate cost of a study conforming to the above terms of reference is approximately
$25,000.00. At this stage it is not known whether the information to be gathered will be
adequate given the nature of such studies, ie. if it is found that more detailed research is
required to determine which is the best monitoring system available, more study may be
necessary. Should it be found that further work is necessary due to a broadening of the scope,
a more detailed proposal will be requested and a further report will be prepared for
consideration by City Council.
Of paramount importance is the need for ongoing co-operation from the Greater Toronto
Airports Authority. Officials with the Authority have agreed that in order to conduct the
review, access to all pertinent information such as the noise monitoring system field set-up
and data collected from the various locations will be provided.
In addition, there may be an opportunity to recover all or some of the funds in view of the
importance of this study to the Greater Toronto Airports Authority.
Contact Name and Telephone Number:
Mr. Chris Andrew,
Co-ordinator, Noise Section,
Environmental Services Section,
Works and Emergency Services,
Toronto Community Council Area,
Phone: 392-0791
Fax: 392-1456
E-mail "candrew@toronto.ca"
Tom Denes, P. Eng.,
Executive Director,
Technical Services Division.
Barry Gutteridge,
Commissioner,
Works and Emergency Services.
CA/cv/bm
PEARSON.REP
