Order Code RS20531
Updated July 15, 2002
CRS Report for Congress
Received through the CRS Web
Noise Abatement and Control: An Overview
of Federal Standards and Regulations
David M. Bearden
Environmental Information Analyst
Resources, Science, and Industry Division
Summary
Constant or repeated exposure to sounds of 90 decibels or higher can lead to
hearing loss, and noise exposure is responsible for hearing impairment in about 10
million people in the United States. To limit the public’s exposure to potentially
harmful sound levels, the federal government sets and enforces uniform noise control
standards for aircraft and airports, interstate motor carriers and railroads, workplace
activities, medium and heavy-duty trucks, motorcycles and mopeds, portable air
compressors, federal highway projects, and federal housing projects. State and local
governments determine the extent to which other sources of noise are controlled,
including sound levels generated by commercial, industrial, and residential activities.
In the 107th Congress, at least 24 bills have been introduced which address noise
exposure. Sixteen bills, H.R. 299, H.R. 1288, H.R. 1741, H.R. 2299, H.R. 2429, H.R.
2430, H.R. 2477, H.R. 2746, H.R. 3479, H.R. 3886, H.R. 4481, H.R. 4653, S. 633, S.
688, S. 1786, and S. 2039 address aircraft noise. Four bills, S. 365, S. 712, S. 1136, and
S. 1151, address noise in national parks and on public lands. Two bills, H.R. 2811 and
H.R. 4761, would address railway noise. Other legislation, H.R. 1130, would authorize
grants for examining the effects of noise and other environmental aspects on student
achievement in elementary and secondary schools, and H.R. 1116 would reestablish
EPA’s former Office of Noise Abatement and Control. This report will be updated as
legislative activity and other relevant developments occur.
Introduction
According to the National Institute on Deafness and Other Communication
Disorders, exposure to loud sounds is responsible for hearing impairment in 10 million
of the nearly 30 million people with hearing loss in the United States, and an additional
30 million people are exposed to dangerous noise levels on a daily basis. Several federal
laws require the federal government to provide uniform noise control standards which
limit the public’s exposure to potentially harmful sound levels, and the responsibility for
setting and enforcing them is divided among multiple federal agencies. In the past, the
Environmental Protection Agency (EPA) coordinated all federal noise control activities
Congressional Research Service ˜ The Library of Congress

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through its Office of Noise Abatement and Control. However, Congress phased out the
office’s funding in FY1983 as part of a shift in federal noise control policy to transfer the
primary responsibility of regulating noise to state and local governments. While EPA no
longer plays a prominent role in controlling noise, its past standards and regulations
remain in effect, and other federal agencies continue to set and enforce noise control
standards for sources within their regulatory jurisdiction.

This report explains how noise is measured, identifies the sources of noise that are
currently regulated by the federal government, describes the extent to which the federal
standards limit noise, explains the role of state and local governments, and discusses
legislative activity in the 107th Congress.
How Loud Is Too Loud?
Sound is measured in units of decibels (dbA), and an increase of 10 dbA represents
sounds that are perceived to be twice as loud. While sound levels of 65 dbA are annoying
to most individuals, constant or repeated exposure to levels of 90 dbA or higher can lead
to hearing loss.1 The table below provides examples of various sound levels.
Sound Levels Generated by Various Sources of Noise
Sound Level
dbA
Quiet library, soft whispers
30
Living room, refrigerator
40
Light traffic, normal conversation, quiet office
50
Air conditioner at 20 feet, sewing machine
60
Vacuum cleaner, hair dryer, noisy restaurant
70
Average city traffic, garbage disposals, alarm clock at 2 feet
80
Subway, motorcycle, truck traffic, lawn mower
90
Garbage truck, chain saw, pneumatic drill
100
Rock band concert in front of speakers, thunderclap
120
Gunshot blast, jet plane
140
Rocket launching pad
180
Source: Deafness Research Foundation.
What Sources of Noise Are Subject to Federal Regulation?
The Noise Control Act of 1972 (P.L. 92-574) and several other federal laws require
the federal government to set and enforce uniform noise control standards for aircraft and
airports, interstate motor carriers and railroads, workplace activities, medium and heavy-
duty trucks, motorcycles and mopeds, portable air compressors, federal highway projects,
and federal housing projects. The Noise Control Act also requires federal agencies to
comply with all federal, state, and local noise control laws and regulations. Most federal
1 For more information, see the National Institutes of Health web site [http://www.nidcd.nih.gov].

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noise standards focus on preventing hearing loss by limiting the public’s exposure to
sounds of 90 dbA and higher. However, some are stricter and prohibit quieter levels that
are annoying and can diminish one’s quality of life. Federal noise standards and the
agencies that set and enforce them are discussed below.
Aircraft and Airports.2 The Aircraft Noise Abatement Act of 1968 (P.L. 90-411)
requires the Federal Aviation Administration (FAA) to develop and enforce safe standards
for aircraft noise.3 In developing these standards, the FAA generally follows the noise
restrictions established by the International Civil Aviation Organization (ICAO). Federal
noise control regulations define aircraft according to three classes: Stage 1, Stage 2, and
Stage 3. Stage 1 aircraft are the loudest, and Stage 3 are the quietest. All Stage 1 aircraft
have been phased out of commercial operation, and all unmodified Stage 2 aircraft over
75,000 pounds were phased out by December 31, 1999, as required by the Airport Noise
and Capacity Act of 1990 (P.L. 101-508, Subtitle D).4 Stage 3 aircraft must meet separate
standards for runway takeoffs, landings, and sidelines, ranging from 89 to 106 dbA
depending on the aircraft’s weight and its number of engines.5 The ICAO has adopted
stricter Stage 4 (referred to as Chapter 4 in ICAO parlance) aircraft noise standards, which
are quieter by 10 dbA than the current Stage 3 standards.6 However, the Stage 4 standards
must go through the federal rulemaking process before they could be applied in the United
States, and the FAA has not proposed such standards to date. The Airport and Airway
Improvement Act of 1982 (P.L. 97-248) established the Airport Improvement Program
(AIP) to provide federal assistance for airport construction projects and award grants for
noise mitigation. Airport operators applying for such grants must design noise exposure
maps and develop mitigation programs to ensure that noise levels are compatible with
relevant land uses.7 Approximately $271 million is available for AIP noise mitigation
grants in FY2002, and the Administration has requested $274 million for FY2003.
Interstate Motor Carriers. The Noise Control Act required EPA to develop noise
control standards for motor carriers engaged in interstate commerce, and it authorized the
Federal Highway Administration to enforce them.8 All commercial vehicles over 10,000
pounds are subject to standards for highway travel and stationary operation, but the
standards do not apply to sound levels generated by horns or sirens when operated as
warning devices for safety purposes.9 For highway travel, the standards range from 81 to
93 dbA, depending on the speed of the vehicle and the distance from which the sound is
measured. The standards for stationary operation are similar and range from 83 to 91
dbA, depending on the distance from the vehicle. The standards apply at any time or
condition of highway grade, vehicle load, acceleration, or deceleration.
2 For more information on aircraft noise, see the FAA’s web site [http://www.aee.faa.gov].
3 49 U.S.C. 44715
4 49 U.S.C. 47528
5 14 C.F.R. 36
6 For more information on the new standards, see the ICAO’s web site [http://www.icao.org].
7 14 C.F.R. 150
8 42 U.S.C. 4917
9 49 C.F.R. 325

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Interstate Railroads. The Noise Control Act also required EPA to establish noise
control standards for trains and railway stations engaged in interstate commerce, and it
authorized the Federal Railroad Administration to enforce them.10 The standards do not
apply to sound levels generated by horns, whistles, or bells, when operated as warning
devices for safety purposes. There are separate standards for locomotives, railway cars,
and railway station activities such as car coupling.11 For locomotives built before 1980,
the level of noise is limited to 73 dbA in stationary operation and at idle speeds, and is
limited to 96 dbA at cruising speeds. The standards for locomotives built after 1979 are
more stringent and limit noise in stationary operation and at idle speeds to 70 dbA and at
cruising speeds to 90 dbA. Noise from railway cars must not exceed 88 dbA at speeds of
45 miles per hour (mph) or less and must not surpass 93 dbA at speeds greater than 45
mph. Noise from car coupling activities at railway stations is limited to 92 dbA.
Workplace Activities. The Occupational Safety and Health Act of 1970 (P.L. 91-
596) required the Occupational Safety and Health Administration (OSHA) to develop and
enforce safety and health standards for workplace activities.12 To protect workers, OSHA
established standards which specify the duration of time that employees can safely be
exposed to specific sound levels.13 At a minimum, constant noise exposure must not
exceed 90 dbA over 8 hours. The highest sound level to which workers can constantly
be exposed is 115 dbA, and exposure to this level must not exceed 15 minutes within an
8-hour period. The standards limit instantaneous exposure, such as impact noise, to 140
dbA. If noise levels exceed these standards, employers are required to provide hearing
protection equipment that will reduce sound levels to acceptable limits.
Other Regulated Sources of Noise. The Noise Control Act directed EPA to
set and enforce noise control standards for certain commercial products, including
transportation equipment, motors and engines, and construction equipment.14 Under this
authority, EPA set noise control standards for motorcycles and mopeds, medium and
heavy-duty trucks over 10,000 pounds, and portable air compressors. The standards for
motorcycles only apply to those manufactured after 1982 and range from 80 to 86 dbA
depending on the model year and whether the motorcycle is designed for street or off-road
use.15 Noise from mopeds is limited to 70 dbA. The standards for trucks over 10,000
pounds only apply to those manufactured after 1978 and range from 80 to 83 dbA
depending on the model year.16 These standards are separate from those for interstate
motor carriers. Noise from portable air compressors is limited to 76 dbA.17 The Noise
Control Act also authorized EPA to require labels for products which reduce noise.18
Under this authority, EPA established Noise Reduction Ratings for hearing protection
10 42 U.S.C. 4916
11 49 C.F.R. 210
12 29 U.S.C. 655
13 29 C.F.R. 1910.95
14 42 U.S.C. 4905
15 40 C.F.R. 205, Subparts D and E
16 40 C.F.R. 205, Subpart B
17 40 C.F.R. 204
18 42 U.S.C. 4907

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devices which require manufacturers to identify the level of sound from which the device
protects the user.19
There also are noise control standards for federal highway construction projects and
federal housing projects. The Federal-Aid Highway Act of 1970 (P.L. 91-605) required
the Federal Highway Administration to develop standards for highway noise levels that
are compatible with different land uses.20 The law prohibits the approval of federal
funding for highway projects that do not incorporate mitigation measures to meet these
standards, which range from 52 to 75 dbA depending on land use.21 Under general
authorities provided by the Housing and Urban Development Act of 1968 (P.L. 90-448),
there also are standards for federal housing projects located in noise exposed areas.22 The
standards are designed to protect occupants from annoying and potentially harmful sound
levels by limiting interior noise to a daily average of 65 dbA.23
What Is the State and Local Role in Controlling Noise?
As discussed above, the federal role in regulating noise is mostly limited to
transportation, workplace activities, and certain types of machinery. State and local
governments determine the extent to which other sources of noise are controlled, and
regulations for such sources can vary widely among localities. Further, some states do not
specifically regulate noise, but instead, allow local governments to play the primary role.
Sources of noise commonly regulated at the state and local level include commercial,
industrial, and residential activities. Regulations for such sources typically control the
public’s exposure to irritating or potentially harmful noise levels by limiting the activity
concerned to specific times of the day, such as the operation of domestic power tools or
gasoline-powered lawn equipment in residential areas.
Legislative Activity in the 107th Congress
In the 107th Congress, at least 24 bills have been introduced which address noise
exposure. Sixteen bills address aircraft noise, five of which propose operation
restrictions. As introduced, H.R. 299 would prohibit the operation of civil subsonic
turbojets that exceed Stage 3 noise levels to or from airports in the 20 most populated
areas in the United States. As introduced, H.R. 1741 would prohibit the operation of civil
supersonic transport category aircraft that exceed Stage 3 noise levels to or from airports
in the United States. H.R. 1288 and S. 688, as introduced, would preserve certain local
noise and access restrictions established prior to 1985. H.R. 2746, as introduced, would
establish a commission to make recommendations to Congress on appropriate curfews for
the operation of civilian aircraft over populated areas of the United States during “normal
sleeping hours”. Five other bills would address noise at specific airports. H.R. 2429 and
H.R. 2430, as introduced, would provide a variety of assistance to communities affected
by noise exposure from Los Angeles International Airport. S. 1786 as introduced, and
19 40 C.F.R. 211
20 23 U.S.C. 109(i)
21 23 C.F.R. 772
22 42 U.S.C. 3535(d)
23 24 C.F.R. 51, Subpart B

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H.R. 3479 and S. 2039 as reported, would direct the FAA to facilitate the expansion of
runway capacity at O’Hare International Airport, subject to the condition that the noise
impacts of such expansion would be less than exposure levels that occurred in 2000. H.R.
3479 failed to pass the House during a floor vote on July 15, 2002.
Other aircraft noise bills are broader in scope. As introduced, H.R. 2477 would
prohibit construction projects to expand capacity at airports located in counties with a
population of 9 million or more, and at those with a capacity to serve 80 million or more
passengers annually. Limiting capacity might slow the rise in airline traffic and prevent
overall noise levels from increasing. As introduced, H.R. 3886 would require EPA to
study the feasibility of collectively regulating sources of noise and other pollution at and
around airports using the concept of “bubbles” to examine all pollution sources within a
specific radius. As passed, H.R. 4481 would require the Secretary of Transportation to
streamline the environmental review process for airport expansion projects, and would
address noise mitigation. As reported, S. 633 includes similar streamlining provisions
and would increase the amount of annual discretionary funding set aside under the AIP
for noise mitigation grants from 34% to 35%. As introduced, H.R. 4653 would establish
an Office of Aeronautics within the National Aeronautics and Space Administration
(NASA) to develop technologies that would reduce noise and improve the performance
of commercial aircraft and helicopters. In the first session, the Department of
Transportation and Related Agencies Appropriations Act for FY2002 (P.L. 107-87, H.R.
2299) provided $271 million for noise mitigation grants under the AIP, and $20 million
for the FAA to work with NASA to develop aircraft noise reduction technologies.
Four bills address noise in national parks and on public lands. As introduced, S. 365
would require EPA to develop national emission standards for snowmobiles. Considering
the noise reductions achieved as a result of these standards, the bill would require the
National Park Service to develop noise standards for the recreational use of snowmobiles
on park lands. As introduced, S. 712 would prohibit the operation of commercial air tours
in the airspace over Yellowstone National Park and Grand Teton National Park. As
introduced, S. 1136 would authorize $65 million annually from FY2002 to FY2007 to
establish a Federal Land Transit Program within the Department of Transportation. This
program would provide planning, research, and technical assistance to the federal land
management agencies in developing cleaner and quieter modes of transportation for use
in national parks and on public lands. As introduced, S. 1151 would establish alternatives
to “quiet aircraft technologies” that could satisfy noise restrictions for commercial air
tours over Grand Canyon National Park.
Four other bills also address noise exposure. As introduced, H.R. 2811 would
require new regulations to reduce noise from railroad operations and facilities, and H.R.
4761 would focus on reducing noise from high-speed railways that operate in excess of
150 miles per hour. As introduced, H.R. 1130 would authorize $2 million annually from
FY2002 to FY2004 to award competitive grants for examining the effects of noise and
other aspects of the physical environment in elementary and secondary schools. As
introduced, H.R. 1116 would reestablish EPA’s former Office of Noise Abatement and
Control and authorize $21 million annually from FY2002 to FY2006 for its activities.
The office’s primary functions would be to provide states with technical assistance and
grants to develop noise control programs, and to conduct research and disseminate
information on the effects of noise on human health. H.R. 1116 also would direct EPA
to study the FAA’s airport noise regulations and recommend new measures that would
reduce the impacts of such noise on surrounding communities.

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