Order Code RS20531
Updated December 13, 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 Policy 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 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 are regulated, including commercial,
industrial, and residential activities. Numerous bills were introduced in the 107th
Congress to address noise exposure. Aside from appropriations for airport noise
mitigation grants in FY2002, none of them were enacted. The majority of this
legislation focused on aircraft noise, including: 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, H.R. 5142, H.R. 5143, H.R. 5559, S. 633, S. 688, S. 1786, S. 2039, S. 2808,
and S. 2966. Other bills addressed noise in national parks and on public lands: S. 365,
S. 712, S. 1136, and S. 1151. Two bills addressed railway noise: H.R. 2811 and H.R.
4761. Other legislation, H.R. 1130, would have authorized grants to examine the effects
of noise and other environmental aspects on student achievement in elementary and
secondary schools. Another bill, H.R. 1116 would have reauthorized EPA’s former
Office of Noise Abatement and Control. Due to ongoing concerns about noise exposure
in many affected communities, a similar body of legislation may be considered during
the 108th Congress. This report will be updated as 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 daily. Several federal laws
require the federal government to provide uniform standards for various sources of noise.
Congressional Research Service ˜ The Library of Congress

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The responsibility for setting and enforcing these standards is divided among multiple
federal agencies. In the past, the Environmental Protection Agency (EPA) coordinated
all federal noise control activities 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. Although EPA no longer plays a prominent role in regulating noise,
its past standards and regulations remain in effect, and other federal agencies continue to
set and enforce noise 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 noise
control legislation that was considered during 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 standards for aircraft and
airports, interstate motor carriers and railroads, workplace activities, medium and heavy-
1 For more information, see the National Institutes of Health Web site
[http://www.nidcd.nih.gov].

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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 requirements. Most federal noise standards
focus on preventing hearing loss by limiting exposure to sounds of 90 dbA and higher.
However, some are stricter and focus on limiting exposure to quieter levels that are
annoying to most individuals 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 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
Interstate Motor Carriers. The Noise Control Act required EPA to develop noise
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 sounds from 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
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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distance from the vehicle. The standards apply at any time or condition of highway grade,
vehicle load, acceleration, or deceleration.
Interstate Railroads. The Noise Control Act also required EPA to establish noise
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
sounds from 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, 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 stricter, 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 standards for transportation, construction, and electrical equipment,
and motors or engines.14 Under this authority, EPA established 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
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

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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 devices which require manufacturers to identify the level of sound
from which the device protects the user.19
There also are noise standards for federal highway 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 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 limit 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
directly regulate noise, but 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
Numerous bills were introduced in the 107th Congress to address noise exposure.
Aside from appropriations for airport noise mitigation grants in FY2002, none of them
were enacted. Due to ongoing concerns about noise exposure in many affected
communities, a similar body of legislation may be considered during the 108th Congress.
Noise control legislation in the 107th Congress focused mainly on aircraft noise. Five bills
proposed operation restrictions. As introduced, H.R. 299 would have prohibited the
operation of civil subsonic turbojets that exceeded Stage 3 noise levels to or from airports
in heavily populated areas. As introduced, H.R. 1741 would have prohibited the
operation of civil supersonic transport aircraft that exceed Stage 3 noise levels. H.R.
17 40 C.F.R. 204
18 42 U.S.C. 4907
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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1288 and S. 688, as introduced, would have preserved local noise and access restrictions
established prior to 1985. H.R. 2746, as introduced, would have formed a commission
to recommend operating curfews for civilian aircraft over populated areas during “normal
sleeping hours”. Seven bills focused on noise at specific airports. As introduced, H.R.
2429, H.R. 2430, H.R. 5142, and H.R. 5143 would have addressed noise from Los
Angeles International Airport. H.R. 3479 as passed, S. 2039 as reported, and S. 1786 as
introduced, would have directed the FAA to facilitate the expansion of runway capacity
at O’Hare International Airport, if the expansion would not cause noise to increase.
Other aircraft noise bills were broader in scope. As introduced, H.R. 2477 would
have prohibited capacity expansion projects at airports in areas with a population of at
least 9 million that serve at least 80 million passengers annually. Efforts to limit capacity
might slow the rise in airline traffic and help to prevent noise from increasing. As
introduced, H.R. 3886 would have required EPA to study the feasibility of collectively
regulating sources of noise and other pollution around airports. As passed, H.R. 4481
would have addressed noise mitigation as part of efforts to streamline the environmental
review process for airport expansion projects. As reported, S. 633 included similar
streamlining provisions, and would have increased the amount of annual discretionary
funding set aside under the AIP for noise mitigation grants. As introduced, H.R. 4653 and
S. 2966 would have directed the National Aeronautics and Space Administration (NASA)
to develop technologies to reduce noise and improve the performance of commercial
aircraft and helicopters. As reported, H.R. 5559 and S. 2808 would have appropriated
funding in FY2003 for airport noise mitigation grants, although in different amounts.
Floor action was not taken on either bill. A continuing resolution (P.L. 107-294) provides
funding through January 11, 2003, at the FY2002 funding level of $271 million. Further
action on appropriations for FY2003 is expected early in the 108th Congress
Four bills addressed noise in national parks and on public lands. As introduced, S.
365 would have required EPA to develop national emission standards for snowmobiles.
Considering the noise reductions achieved as a result of these standards, the bill would
have required the National Park Service to develop noise standards for the recreational
use of snowmobiles on park lands. As introduced, S. 712 would have prohibited the
operation of commercial air tours in the airspace over Yellowstone National Park and
Grand Teton National Park. As introduced, S. 1136 would have authorized $65 million
annually from FY2002 to FY2007 to establish a Federal Land Transit Program within the
Department of Transportation to 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 have established alternatives to “quiet aircraft technologies” that could satisfy noise
restrictions for commercial air tours over Grand Canyon National Park.
Four other bills also addressed noise exposure. As introduced, H.R. 2811 would
have required new railroad noise regulations, and H.R. 4761 would have focused on
reducing noise from high-speed railways that operate in excess of 150 miles per hour. As
introduced, H.R. 1130 would have authorized $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 have reauthorized EPA’s former Office of Noise Abatement and Control at
$21 million annually from FY2002 to FY2006. H.R. 1116 also would have directed 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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