Exposure of Europe’s population to environmental noise

Environmental noise remains a significant problem in Europe. Over 20% of the population live in areas where transport noise levels are harmful to health when measured against thresholds established in the Environmental Noise Directive. If applied to the stricter WHO thresholds, this figure is raised to over 30%. Road traffic is the main source of noise pollution in both urban and rural settings. A key commitment of the European Commission’s zero pollution ambition is to reduce the share of people chronically disturbed by transport noise by 30% by 2030, compared with 2017.

Chronic exposure to environmental noise significantly affects physical and mental health. Living in an area affected by transport noise is associated with an increased risk of developing a wide range of health issues. Included are cardiovascular, metabolic, and mental health conditions.

A substantial number of people live in areas where transport noise is detrimental to health. Approximately 106 million individuals (over 20% of Europe's population) are exposed to long-term unhealthy noise levels from road, rail, and aircraft sources, as defined by Environmental Noise Directive (END) thresholds. These refer to exposure levels of 55dB or above during the day-evening-night period.

Road traffic is the primary source of noise pollution across Europe. Data submitted under the 2022 round of END noise mapping estimates that approximately 87 million people are exposed to road noise levels of 55dB or higher during the day-evening-night period. Around 56 million are affected by night-time noise. Noise from railways and aircraft has a much lower impact in terms of the overall population, yet both are significant sources of local noise pollution.

The World Health Organization (WHO) recommended levels are significantly lower than END thresholds, therefore a considerably larger number of individuals may be exposed to transport-related noise levels that can negatively impact health. Considering WHO thresholds, it is estimated that approximately 144 million people (over 30% of the population) are exposed to unhealthy noise levels from transportation sources.

Establishing trends is difficult due to methodological changes between reporting years; thus, findings should be interpreted cautiously. A 2017 baseline has been established to enable comparison with 2022 data, reflecting changes in the methodologies used for calculating strategic noise maps. Based on this, a marginal decrease in road traffic noise exposure is noted in both urban and rural areas, and a marginal reduction in railway noise outside urban areas. Notably, aircraft noise exposure in 2022 has significantly decreased, likely due to the lingering effects of COVID-19, as many airports experienced reduced traffic levels compared to typical years. Conversely, there has been an increase in the number of individuals exposed to railway noise in urban areas during both daytime and nighttime periods.

Efforts to reduce exposure to noise from individual sources may be offset by urban migration, leading to increased population, activity and traffic levels. An increased demand for passenger and goods transport also hampers efforts to reduce noise. With the lack of a substantial decrease in those exposed to harmful noise levels over the years, a key commitment of the European Commission’s zero-pollution ambition is to reduce the proportion of people chronically disturbed by transport noise by 30% by 2030, compared to 2017 levels.

Estimated percentage of inhabitants within urban areas exposed to unhealthy road traffic noise levels, based on Environmental Noise Directive thresholds, in 2022

It is estimated that about 64 million people in the EU-27 member countries that are exposed to harmful levels of road traffic noise in urban areas. In the 32 EEA member coutries (excluding Türkiye) this value is nearly 67 million.

It is difficult to make comparisons between countries’ urban areas, because there are differences in the coverage of roads mapped (e.g. some countries map all streets in cities, while some map only the busiest streets). However, It is clear that a large number of people are exposed to unhealthy levels of road traffic noise in most urban areas in Europe.

Most countries have between 30-60% of their urban population exposed above 55dB L_den, which is less stringent than the WHO recommended threshold of 53dB L_den.This suggests that the exposure to harmful levels of noise is even more significant and indicates that road traffic noise is a persistent health problem across urban areas. Substantial benefits in health and well-being can be delivered through reducing exposure to noise, particularly in urban areas.

Supporting information

Definition

This indicator provides an overview of the estimated number of people in Europe exposed to environmental noise above the threshold levels set by the Environmental Noise Directive (2002/49/EC) in both urban and non-urban areas. It also considers the number of people exposed to more stringent thresholds set by the World Health Organization (WHO) Environmental Noise Guidelines in the European Region.

The harmful levels include environmental noise from industry, roads with more than 3 million vehicles per year, railways with more than 30,000 railway movements per year, airports with more than 50,000 air traffic movements per year, and in urban areas with more than 100,000 inhabitants.

In accordance with the lowest available values used in noise mapping for measuring noise pollution under the END, 55dB for the day-evening-night period and 50dB for the night-time period were used as threshold values for the indicator. Additionally, since health impacts begin below the thresholds set in the END, an extrapolation of the population exposed to the WHO recommended levels has been calculated for 2022.

Methodology

Methodology for indicator calculation

This indicator is based on data reported by EU Member States in accordance with Directive 2002/49/EC (the END). In addition, we present a disaggregated assessment for road traffic noise which includes EEA member countries (excluding Türkiye). The data used cover noise sources such as roads with more than 3 million vehicle passages a year, railways with more than 30 000 train passages per year and airports with more than 50,000 aircraft movements per year, as well as all roads, railways, airports and industries in urban areas with more than 100,000 inhabitants. The indicator mainly focuses on the number of people exposed to noise levels of 55dB or higher during the day-evening-night period and to night-time noise levels of 50dB or higher. These reporting thresholds, i.e. 55dB L_den and 50dB L_night, are above the thresholds recommended by the WHO (2018). This means that in reality more people may be exposed to unhealthy noise levels than those reported to be exposed on the basis of the current END thresholds. To estimate the discrepancy between the END and WHO thresholds, the population exposed to noise levels exceeding WHO recommendations for the year 2022 has been extrapolated using this methodology.

It should be noted that, for the data presented in this indicator, countries have used a wide variety of calculation methods and approaches in developing their noise maps. Therefore, the results of the different countries or years generated by different prediction methods may not be fully comparable and therefore trends reported should be interpreted with caution. Since January 1, 2019, EU Member States are required to utilise a common assessment method for noise mapping known as CNOSSOS-EU when preparing noise maps in accordance with the END. As a result, the strategic noise maps from subsequent rounds exhibit a higher degree of harmonisation across countries. In previous rounds of noise mapping, Member States could use their own national methods. A 2017 baseline has been established to facilitate a comparison with the 2022 data due to the changes in methodologies used for calculating strategic noise maps between these years.

To avoid the double counting of the population, the numbers of people exposed to noise are presented separately for each source in Figure 1.

Methodology for gap filling

Because of the incomplete reporting of the data by some countries, gap filling was performed to complete any missing information and ensure a full assessment of environmental noise in Europe. Detailed information on the gap-filling methodology can be found here. Detailed completeness of the data by country can be seen in the EEA datahub. The following agglomerations in Figure 2 were modelled: Charleroi; Liege; Varna; Sofia; Plovdiv; Burgas; Stara Zagora; Ruse; Pleven; Aachen; Duisburg; Essen; Hagen; Moers; Muelheim on the Ruhr; Neuss; Remscheid; Solingen; Athens Center; Thessaloniki; Piraeus; Patras; Iraklion; Volos; Ioannina; Larissa; Athens North; Alicante; Cordoba; Las Palmas de Gran Canaria; Malaga; Murcia; Palma de Mallorca; Santa Cruz de Tenerife; Sevilla; Zaragoza; Badajoz; Baix Llobregat Sud; A Coruna; Albacete; Alcala de Henares; Alcorcon; Algeciras; Almeria; Burgos; Cadiz; Cartagena; Elche; Girones; Granada; Huelva; Jaen; Jerez de la Frontera; Lleida; Mataro; Mostoles; Reus; Salamanca; San Cristobal de La Laguna; Santander; Tarragones; Valles Occidental I; Valles Occidental II; Parla; Telde; Baix Llobregat Nord; Barcelona; Barcelones Nord; L'Hospitalet de Llobregat; Barakaldo; Roquetas de Mar; Lille; Metz; Montpellier; Nancy; Nantes; Orleans; Rennes; Rouen; Strasbourg; Toulon; Toulouse; Tours; Saint-Etienne; Besancon; Dijon; Le Havre; Le Mans; Perpignan; Poitiers; Cannes; Courcouronnes; Henin-Beaumont; Lens; Roissy-en-France; Budapest; Debrecen; Miskolc; Szeged; Pecs; Gyor; Nyiregyhaza; Kecskemet; Reykjavik; Reykjanesbaer; Mosfellsbaer; Kopavogur; Gardabaer; Akureyri; Selfoss; Hafnafjordur; Seltjarnarnes; Palermo; Cagliari; Maastricht; Tilburg; Lisbon; Drobeta-Turnu Severin; Piatra-Neamt; Ramnicu Valcea; Suceava; Vaslui; Brasov; Bucharest; Cluj-Napoca; Constanta; Craiova; Galati; Iasi; Ploiesti; Timisoara; Arad; Bacau; Baia Mare; Botosani; Braila; Buzau; Oradea; Pitesti; Satu Mare; Sibiu; Targu Mures; Ljubljana; Maribor; Bratislava; Kosicka.

Policy/environmental relevance

Context description

Chronic exposure to environmental noise has significant impacts on physical and mental health. The WHO has identified noise as the second most significant environmental cause of ill health in western Europe, the first being air pollution. Exposure to environmental noise can lead to annoyance, stress reactions, sleep disturbance, poor mental health and well-being, and cognitive impairment in children, and can have negative effects on the cardiovascular and metabolic systems.

In 2018, the WHO published new guidelines on environmental noise for the European region. These guidelines include recommendations for different types of transport sources. For instance, the WHO recommends that noise exposure from road traffic should not exceed 53dB during the day-evening-night period and 45dB during the night to avoid adverse consequences on health. The recommended values for rail are 54dB during the day-evening-night period and 44dB during the night. The recommendations for aircraft are that noise levels should not exceed 45dB during the day-evening-night period and 40dB during the night.

Context description

The END is the main EU instrument through which noise emissions are monitored and actions developed. It defines environmental noise as ‘unwanted or harmful outdoor sound created by human activities, including noise emitted by means of transport, road traffic, rail traffic, air traffic and from sites of industrial activity’. It places an obligation on EU Member States to assess noise levels by producing strategic noise maps for all major roads, railways, airports and urban areas. Based on these noise-mapping results, Member States must prepare action plans containing measures that address noise issues and their effects for areas where specific END threshold values (i.e. 55dB averaged across day-evening-night periods (L_den) and 50dB averaged across night-time periods (L_night)) are exceeded. The END neither sets limit values for noise exposure nor prescribes measures for inclusion in the action plans. Finally, Member States are required to select and preserve areas of good acoustic environmental quality, referred to as quiet areas, to protect the European soundscape.

Targets

One of the key commitments of the European Commission’s zero-pollution ambition is to reduce the share of people chronically disturbed by transport noise by 30% by 2030, compared with 2017.

Metadata

DPSIRTopicsTagsTemporal coverageGeographic coverage

TypologyUN SDGsUnit of measure

L_den (day-evening-night noise level): the long-term average indicator designed to assess annoyance and defined by the Environmental Noise Directive (END). It refers to an A-weighted average sound pressure level over all days, evenings and nights in a year, with an evening weighting of 5dB and a night weighting of 10dB.

L_night (night noise level): the long-term average indicator defined by the END and designed to assess sleep disturbance. It refers to an A-weighted annual average night period of exposure.

dB: decibel, a unit of measurement for sound.

Frequency of dissemination

References and footnotes

WHO Europe, 2018, Environmental noise guidelines for the European region, World Health Organization Regional Office for Europe, Copenhagen.

^a^b^c^d
EU, 2002, Directive 2002/49/EC of the European Parliament and of the Council of 25 June 2002 relating to the assessment and management of environmental noise, OJ L 189, 18.7.2002, p. 12-25.

^a^b
WHO Europe and JRC, 2011, Burden of disease from environmental noise — Quantification of healthy life years lost in Europe, World Health Organization Regional Office for Europe, Copenhagen.

^↵

Exposure of Europe’s population to environmental noise

Figure 1. Estimated number of people exposed to long-term harmful levels of road, rail and aircraft noise, EU-27

Figure 2. Estimated percentage of inhabitants within urban areas exposed to unhealthy road traffic noise levels, based on Environmental Noise Directive thresholds, in 2022

Supporting information

Methodology for indicator calculation

Methodology for gap filling

Context description

Targets

Related policy documents

Methodology uncertainty

Data sets uncertainty

Rationale uncertainty

Metadata

References and footnotes