Lester B. Pearson International Airport - Noise

Monitoring Study - Terms of Reference and Cost Estimate

The Strategic Policies and Priorities Committee recommends the adoption of the Recommendation of the Budget Committee embodied in the following communication (February 22, 1999) from the City Clerk:

Recommendations:

The Budget Committee on February 19, 1999, recommended to the Strategic Policies and Priorities Committee, and Council, the adoption of the report (December 22, 1998) from the Commissioner of Works and Emergency Services, wherein it is recommended that:

(1)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; and

(2)the Greater Toronto Airports Authority be requested to reimburse the City for this expense.

Background:

The Budget Committee on February 19, 1999, had before it a communication (February 10, 1999) from the City Clerk advising that the Works and Utilities Committee recommended to the Budget Committee the adoption of the report (December 22, 1998) from the Commissioner of Works and Emergency Services, wherein it is recommended that:

(1)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; and

(2)the Greater Toronto Airports Authority be requested to reimburse the City for this expense.

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(Communication dated February 10, 1999, addressed

to the Budget Committee from the City Clerk)

Recommendations:

The Works and Utilities Committee recommends:

(1)the adoption of the report dated December 22, 1998, from the Commissioner of Works and Emergency Services respecting the Lester B. Pearson International Airport - Noise Monitoring Study - Terms of Reference and Cost Estimate; and

(2)that the report be referred to the Greater Toronto Services Board for information.

Background:

The Works and Utilities Committee on February 10, 1999, again had before it a report (December22, 1998) from the Commissioner of Works and Emergency Services respecting a study 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.

The Committee also again had before it a communication (January 13, 1999) from Ms.LorrieMcKee, Executive Manager, Government Relations, Greater Toronto Airports Authority, requesting that consideration of the staff report be deferred as a deputation item; and inviting Councillors and City staff to tour their Noise Management Office.

(Report dated December 22, 1998, from

the Commissioner of Works and Emergency Services

addressed to the Works and Utilities Committee)

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 program.

Recommendations:

It is recommended that:

(1)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; and

(2)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:

(1)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;

(2)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;

(3)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;

(4)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;

(5)perform a literature search to verify and support the state of the art into research of appropriate descriptors for assessing aircraft noise impact (i.e., 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; and

(6)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 outline 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 estimated 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, i.e., 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".

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The following persons appeared before the Works and Utilities Committee in connection with the foregoing matter:

-Mr. Steve Shaw, Vice President, Corporate Affairs, Greater Toronto Airports Authority; and

-Ms. Sylvia Giovanella, Etobicoke Federation of Ratepayers' and Residents' Associations.