The Balanced Approach

The Balanced Approach provides a flexible way to identify and transparently address specific noise problems. It comprises four principal elements:

• Reduction of noise at source – encouraging the use of quieter aircraft. Aircraft noise (noise at source) is controlled by setting noise limits for aircraft in the Standards and Recommended Practices part in Annex 16 – volume I – to the Convention on International Civil Aviation;
   
• Land-use planning and management serve to prevent noise-sensitive developments close to the airport and near the flight path. Also, it helps to mitigate noise impacts (i.e. through sound insulation). The ICAO Doc 9184, Airport Planning Manual, Part 2 — Land-Use and Environmental Control provides guidance and describes practices adopted for land-use planning and management by some Member States;
   
• Noise abatement via alternative operational procedures that separate aircraft from noise-sensitive areas or reduce thrust settings and associated aircraft noise. ICAO's recommendations on operational procedures are published in several documents, for instance, Doc 8168 PANS-OPS; Doc 9931 Continuous Descent Operations; Doc 9993 Continuous Climb Operations ; Doc 9888 – Review of noise abatement research and development and implementation projects; Doc 10031 Guidance on Environmental Assessment of Proposed Air Traffic Management Operational Changes;
   
• Aircraft operating restrictions during sensitive times (i.e. at night) or limiting the total number of movements. This part is detailed in Chapter 7 of the guidance on the Balanced Approach.

A supporting guidance document, “Guidance on the Balanced Approach to Aircraft Noise Management, ICAO Doc 9829”, has been produced to assist airports in implementing interventions within these core elements. The focus of this document is that operating restrictions should only be applied as a last resort, after the other elements have been considered and applied where appropriate. This acknowledges the critical role of aviation in the global socio-economic system and that reductions in noise can be achieved at a lower economic cost when a more prominent focus is placed on the other Balanced Approach elements.

The ICAO Balanced Approach is transposed into the European Law through the EU Directive 2002/30/EC, later replaced by Regulation (EU) No 598/2014. In the EU, legislation is set centrally, however, its implementation into the local law occurs at the Member State level. This ensures that the exact implementation of the four Balanced Approach elements depends on the contracting states, which can also choose to delegate their powers to a competent authority. Below this level, airports are generally empowered to implement their specific interventions designed to reduce noise impact, although this is commonly supported by external stakeholders, particularly national airspace providers. Doing so is intended to ensure that aircraft noise problems at specific airports can be managed in an environmentally and economically responsible way – cost-effectively achieving maximum environmental benefit.

As well as the four Balanced Approach elements, guidance on noise management at airports often focuses on the central role of communication and engagement between stakeholders. Indeed, ICAO ranks communication and engagement as part of “proper land-use planning and management” and “the key link between environmental stewardship and mitigating environmental constraints to aviation operation and growth”. Two ICAO Circulars undertaken by CAEP highlighted lessons learnt and good practices in community engagement. They assist and encourage the Member States and the aviation industry (airports, airlines, Air Navigation Service Providers, etc.) to engage with local communities early in airport development projects and address environmental matters. Although it is not defined as a genuine pillar of the Balanced Approach, community engagement and communication are highly important and can be seen as related to and a central component of all other Balanced Approach elements.