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BASEMENT CONSTRUCTION VIBRATION GUIDELINE June 2021 CITY OF GOLDCOAST.
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Table of Contents
1. Introduction ............................................................................................................................................. 3
2. Purpose ................................................................................................................................................... 3
2.1 Scope ........................................................................................................................................... 3
2.2 Definitions ..................................................................................................................................... 4
2.3 Requirements to be applied ......................................................................................................... 4
3. Legislative requirements ....................................................................................................................... 6
3.1 Queensland Environmental Protection Act and subordinate legislation...................................... 6
3.2 Council of the City of Gold Coast Local Law No. 8 and 8.1 ........................................................ 6
3.3 City of Gold Coast development approval conditions .................................................................. 6
4. Basement construction vibration requirements ................................................................................. 7
4.1 Noise recommendations .............................................................................................................. 7
4.2 Vibration limits .............................................................................................................................. 7
4.3 Vibration predictions .................................................................................................................... 8
4.4 Vibration buffers ........................................................................................................................... 9
4.5 Vibration monitoring ................................................................................................................... 10
5. Vibration management plan requirements ........................................................................................ 11
6. Vibration monitoring during basement construction process ........................................................ 12
6.1 Vibration measurement procedures for basement construction process .................................. 12
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1. Introduction
Construction plays a crucial role in the ongoing development of the Gold Coast.
The City of Gold Coast (City) manages how development is undertaken in our City through our City Plan
and development approval process.
As the population of the Gold Coast continues to grow, we can expect more buildings to be constructed
in populated areas. The construction of these buildings will often involve basement construction.
Basement construction includes the retention of soil as a permanent or temporary measure during
construction. It may also be referred to as basement retention, foundation walling, ground retention or
shoring. Methods of basement construction include sheet piling, rotary bored piling, CFA (Continuous
Flight Auger) piling and secant piles.
Basement construction in populated areas can create noise and vibration impacts for those living, visiting
and working nearby. The construction industry needs to respond by appropriately managing noise and
vibration issues for basement construction.
This guideline outlines the City’s requirements for basement vibration management, including a
measurable standard of what is acceptable for vibration and how to monitor. It seeks to balance the need
for new construction with reasonable community expectations by encouraging best practice.
Those involved with basement construction are advised to plan projects in accordance with this
guideline. For some projects this will be mandatory when referenced through development conditions.
Throughout this document any reference to a Local Law, Act or Regulation includes reference to any
subsequent amending of the relevant Local Law, Act or Regulation.
This guideline specifically applies to the basement construction stage of building work. The guideline is to
be referenced through development conditions for buildings with basement construction (excluding
houses).
2. Purpose
The purpose of this document is to provide guidelines for industry in relation to managing noise and
vibration for basement construction while focusing on vibration limits as the best method to achieve
outcomes for both.
This guideline seeks to:
Define basement construction vibration limits for vibration management plans.
Provide indicative vibration data for basement construction methods.
Provide guidance for vibration monitoring of basement construction.
Avoid onerous or prohibitive requirements on the development industry, while encouraging best
practice.
Balance the needs of the construction industry with reasonable community expectations.
2.1 Scope
This guideline addresses vibration requirements for basement construction with general advice for noise.
The remainder of the construction process (including the demolition and excavation phases) may form
part of a separate noise management plans.
This guideline relates to development conditions for all buildings with basement construction (excluding
houses).
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This guideline provides the framework to comply with vibration management plan conditions that may be
set as part of a planning development approval.
This guideline does not set dB noise limits (decibels) for basement construction, however these may form part
of a separate noise management plan general requirement.
Vibration levels referred to within this guideline relate to the effects on human comfort and not to structural
aspects.
2.2 Definitions
Building work includes works, activities, events and practices for, or in connection with, the
construction, alteration, demolition or removal of a building as defined by the Building Act
1975.
Class 1a is defined by the National Construction Code.
Assessable development is defined by the Planning Act 2016.
Accepted development is defined by the Planning Act 2016.
2.3 Requirements to be applied
The table below outlines the different types of development and what requirements apply (indicated with
X).
Table 1: What requirements apply
Development
Hours of work are
conditions Development
between 6:30am - 6:30pm
may require a conditions may
Development type Monday - Saturday
noise require a vibration
(excluding public
management management plan
holidays)
plan
Class 1a house or
X
structure1
Building work as City Plan
X
accepted development1
Building work as City Plan
assessable development, X X
no basement2
Building work as City Plan
assessable development, X X X
with basement3
1
Where basement construction forms part of a house or accepted development, applying the principals
of this guideline may assist to reduce the impacts of basement construction on the neighbouring
properties without involvement by the City. For building work as ‘accepted development’ (no planning
development approval) the Environmental Protection Act and the City’s Local Law 8 and 8.1 apply, these
documents restrict the hours of work and provide a process for assessment of out of hours work
requests/permits.
2
A noise management plan may be conditioned on development affecting adjoining properties. Noise
management plans are not covered by this guideline.
3
Where a development with a basement is approved by the City that may have noise and vibration
impacts on adjoining properties a vibration management plan may be conditioned in the planning
development approval.
A conditioned vibration management plan will require approval by the City prior to the commencement of
work. Vibration monitoring may also be required under part 4.5 of this guideline.
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The flowchart below outlines the relevant process and when to use this guideline. CONSTRUCTION VIBRATION MANAGMENT GUIDELINE (A45139253) Page 5 of 13
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3. Legislative requirements
The following legislative documents have helped to inform the development of this guideline.
3.1 Queensland Environmental Protection Act and subordinate legislation
There are no specific limits for construction noise and vibration contained in this legislation, only hours of
building work are provided.
Section 440R of the Environmental Protection Act 1994 provides:
(1) A person must not carry out building work in a way that makes an audible noise—
(a) on a business day or Saturday, before 6.30a.m.
(b) or after 6.30p.m; or on any other day, at any time.
(2) The reference in subsection (1) to a person carrying out building work—
(a) includes a person carrying out building work under an owner-builder permit; and
(b) otherwise does not include a person carrying out building work at premises used by the person only
for residential purposes.
Under this Act, from Monday to Saturday during the hours 6.30 am to 6.30pm there are no noise
restrictions. Work occurring outside of these hours or on Sunday or public holidays must not cause
audible noise.
3.2 Council of the City of Gold Coast Local Law No. 8 and 8.1 (Public Health,
Safety and Amenity) 2008
The City administers noise complaints through the EPA (Environmental Protection Act); this provides
limits on the hours of work between 6.30 am – 6.30 pm; however, the EPA also allows the City to
prescribe noise standards by local law. If a local law noise standard is prescribed, it then applies as a
noise standard instead of the Environmental Protection Act default noise standard.
The City’s current Local Law No. 8 (Public Health, Safety and Amenity) 2008 makes provision for a noise
standard where a permit for building work noise is given for regulated works (out of hours building work).
An out of hours work application including basement construction will need to show compliance with this
guideline.
3.3 City of Gold Coast development approval conditions
A planning development approval issued by the City may include conditions for the developments that
seek to protect amenity. Subject to the development type, specific conditions will be considered by the
assessing town planner for inclusion including the following.
Basement construction – vibration management plan
This condition requires the lodgement of a vibration management plan with the City prior to works being
undertaken to detail how the vibration issues are to be addressed for basement construction. Refer to
Section 5 of this document for further information on how to prepare a vibration management plan.
Monitoring of vibration will be required unless it can be demonstrated the design vibration values will not
be exceeded. Refer to Sections 4.5 and 6 for further information on vibration monitoring
Building construction – construction management plan
This condition requires the lodgement of a construction management plan with the City prior to works
being undertaken to ensure the impacts of works to residents are minimised, that Council’s and other
assets are not damaged, and the general safety of the community is maintained.
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4. Basement construction vibration requirements
4.1 Noise recommendations
The effects of noise differ amongst people, with some able to tolerate sounds that are unacceptable to
others. Noise can significantly impact the health and wellbeing of affected people, and is linked to hearing
damage, stress, sleep disturbance, reduced work performance and general poor health.
There is significant difficulty in attempting a balanced approach for measurable noise levels of construction
sites against the industry needs. This guideline does not set noise limits for the construction of basement
construction noise however these may form part of a separate overall noise management plan requirement.
Limits set for vibration will reduce the level of noise generated at basement construction stage without
prohibitive requirements being placed on industry by setting noise limits.
Despite the vibration limits best practice is still encouraged for basement construction noise, Australian
Standard AS2436-2010 provides technical framework to estimate noise from construction sites and should be
utilised to estimate and manage the effects of basement construction noise on surrounding properties.
4.2 Vibration limits
Vibration levels referred to within this guideline relate to the effects on human comfort and not to structural
aspects.
Humans are capable of detecting vibration at levels which are well below those causing risk of damage to a
building. The degrees of perception for humans are suggested by the vibration level categories given in British
Standard, BS 5228.2 – 2009, Code of Practice Part 2 Vibration for noise and vibration on construction and open
sites – Part 2: Vibration and are shown below in Table 2 (shown in terms of Peak Particle Velocity in mm/s
(PPV)).
Table 2: Guidance on effects of vibration levels for human comfort
Vibration level Effect
(PPV), mm/s
0.14 Vibration might be just perceptible in the most sensitive situations for most
vibration frequencies associated with construction.
0.3 Vibration might be just perceptible in residential environments.
1.0 It is likely that vibration at this level in residential environments will cause
complaints, but can be tolerated if prior warning and explanation has been given
to residents.
10 Vibration is likely to be intolerable for any more than a very brief exposure.
Vibration limits are summarised in Table 3 below. If a methodology is agreed upon with neighbouring buildings
(i.e. to address the impacts while work is being carried out for example, respite periods or alternative
mitigation/work method)), the vibration limit may be increased subject to an RPEQ structural engineer
addressing structural aspects and approval by the City. See Section 5.7.
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Table 3: Vibration limits
Limit for Peak Particle Velocity (PPV), mm/s
Neighbouring building type
All receptors 1.0 (to minimise annoyance)
1.1 – 5
Requirements:
Neighbouring property written agreement (Section 5.7)
Residential buildings (including hotels RPEQ report addressing structural concerns for
and short-term accommodation)1
neighbouring property
Approval by the City as part of a vibration management
plan.
1.1 – 20
Requirements:
Neighbouring property written agreement (Section 5.7)
Commercial buildings (offices and RPEQ report addressing structural concerns for
shop/showrooms)1
neighbouring property
Approval by the City as part of a vibration management
plan.
All receptors greater than 137m from site No requirements
1
Refer to City Plan definitions.
4.3 Vibration predictions
Typical levels for vibration-generating equipment potentially associated with basement construction are detailed
in Table 4.
Table 4: Vibration-generating equipment
Equipment Peak Particle Data reference
Velocity (PPV),
source level (mm/s)
at distance in metres
Piling 12 to 30 at 10 m Environmental Noise Management Manual (RTA
2001)
Concrete saw 0.5 at 10 m
Jack hammer 0.5 at 10 m
Excavator 2.5 at 8 m Tynan, A.E. Ground Vibration Damaging effects to
Buildings, Australian Road Research Board 1973
CFA (Continuous 1 at 1.5 m Burgemeister K., Fisher K. and Franklin K.,
Flight Auger) Measurement and Prediction of Construction
Vibration Affecting Sensitive Laboratories (AAS
Conference Paper 2011)
Small hydraulic 15 at 2 m Construction and maintenance noise estimator (RTA
hammer 2016)
Medium hydraulic 15 at 7 m
hammer
Large hydraulic 15 at 22 m
hammer
Vibratory pile 15 at 2 m to 20 m
driver
(sheet piles)
Pile boring 15 at 2 m (nominal)
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Energy from equipment is transmitted into the ground and transformed into vibration, which attenuates with
distance. The magnitude and attenuation of ground vibration is dependent on the following:
The efficiency of the energy transfer mechanism of the equipment (i.e. impulsive, reciprocating,
rolling or rotating equipment).
The frequency content.
The impact medium stiffness.
The type of wave (surface or body)
The ground type and topography.
Due to the above factors, there is inherent variability in ground vibration predictions without site-specific
measurement data.
Without site specific information, exact vibration levels experienced at receptor buildings is difficult to predict. As
such, vibration levels have been estimated at nominal distances from vibration intensive equipment and are
based on maximum measured data of similar equipment. It is recommended that the results are subjected to
further investigation to determine the following:
Ground hardness (based on geotechnical reports of the ground in the relevant construction areas).
Measured vibration data of the exact equipment proposed to be used.
Shortest distance between vibration intensive works and the nearest sensitive buildings, especially
for piling (except for bored), vibratory rolling, rock-breaking/tunnelling and excavation works.
The exact distance between vibration intensive construction activities and the nearest buildings is not available
at this stage. As such, vibration levels from nominal distances have been predicted and are based on measured
data of similar construction equipment in table 5.
Table 5: Indicative vibration levels at nominal distances from equipment
Predicted Vibration Level (PPV mm/s) at distances between
Equipment vibration intensive equipment and building
2 metres 3 metres 4 metres 5 metres 10 metres 15 metres
Piling (impact) 121.5 71.8 49.4 36.9 15.0 8.9
Concrete saw 4.1 2.4 1.6 1.2 0.5 0.3
Jackhammer 4.1 2.4 1.6 1.2 0.5 0.3
Excavator 15.2 8.9 6.2 4.6 1.9 1.1
Continuous Flight Auger (CFA) 0.7 0.4 0.3 0.2 0.1 0.1
Small hydraulic hammer 16.2 9.6 6.6 4.9 2.0 1.2
Medium hydraulic hammer 57 33 23 17 7 4
Large hydraulic hammer 178 105 72 54 22 13
Impact sheet piling 146 86 59 44 18 11
Vibratory sheet piling 243 144 99 74 30 18
Piling (bored) 6.5 3.8 2.6 2.0 0.8 0.5
4.4 Vibration buffers
Based on the vibration levels predicted in Table 5, recommended working buffer distances have been
determined for vibration intensive activities in Table 6. It should be noted that further investigation should be
undertaken when more details about the exact location of construction activities and the ground characteristics
are made available.
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Table 6: Recommended working buffer distances for vibration intensive equipment
Equipment Buffer distances in metres for different vibration
limits for sensitive receptor buildings
Piling (impact) 81
Concrete saw 6
Jackhammer 6
Excavator 17
CFA (continuous flight 2
auger)
Small hydraulic 18
hammer
Medium hydraulic 45
hammer
Large hydraulic 108
hammer
Impact sheet piling 93
Vibratory sheet piling 137
Piling (bored) 9
The majority of the buildings surrounding basement construction are likely residential properties located
between three and six metres from the construction. Based on the proximity of the construction activities,
methods of construction are likely to be limited to bored piling or use of CFA, with impact and vibratory sheet
piling and normal impact piling highly unlikely to comply with limits of this guideline at these distances.
At a distance of three metres, bored piling would have a vibration level of approximately 4 mm/s, while CFA
would have a vibration level of less than 1 mm/s. It is recommended that builders avoid impact piling and use
alternative piling methods such as bored or CFA piling instead of impact piling.
4.5 Vibration monitoring
Vibration monitoring to verify compliance with the approved vibration management plan will be required unless:
1. The buffer distances provided in Table 6 are exceeded; or
2. The values in Table 3 can be shown by engineering calculation not to exceed the expected vibration at
the receptor building taking into account:
i Ground hardness (based on geotechnical reports of the ground in the relevant construction
areas).
ii Measured vibration data of the exact equipment proposed to be used.
iii Shortest distance between vibration intensive works and the nearest sensitive buildings,
especially for piling (except for bored), vibratory rolling, rock-breaking/tunnelling and excavation
works.
Details of the vibration monitoring to be available to the City’s Development Compliance officers on request.
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5. Vibration management plan requirements
Where required by a planning development approval condition, a vibration management plan must be
prepared by a suitably qualified professional familiar with the management of vibration impacts from
construction activities.
A separate noise management plan may also be required for general construction. This will be detailed
within the development conditions. Refer also to our Management plans webpage.
The vibration management plan can be lodged with the City at [email protected] using our
application for management plan form; this needs to include the information below as a minimum.
5.1 Site description
An accurate property description needs to be provided within the report, which may include several lots.
5.2 Site plan
A site plan must be provided showing the location of the proposed works and neighbouring buildings.
The following information also needs to be included for all neighbouring buildings:
use
height
distance
hours of operation (if relevant, childcare, retail etc)
5.3 Proposal
Include details of the proposal including:
site area
proposed building height
proposed basement depth
proposed method of basement construction
5.4 Development approval conditions being responding to
Detail what development approval conditions the vibration management plan is responding to.
5.5 Predicted vibration levels and sources
Provide details of predicted vibration levels and sources from the proposed basement construction.
5.6 Treatments and management practices
Identify measures and work practices to be implemented to ensure vibration from basement construction
activities are managed and mitigated. The chosen standard and the general approach taken for
adherence to prediction and measurement protocols should be included.
5.7 Neighbouring building consent
If levels exceeding PPV 1.0 mm/s are proposed at the neighbouring building (as per Table 3), written
agreement from the affected neighbouring building owner or body corporate is required together with an
RPEQ structural engineer report addressing structural aspects.
5.8 Site vibration monitoring
Identify the measures and work procedures to monitor vibration emissions when required by section 4.5.
5.9 Complaint response procedure
Provide details of complaint response procedures.
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6. Vibration monitoring during basement construction process
Basement construction typically involves the construction of retaining walls which may include the
installation of piles via hammer impacts, rotary bored piles or sheet piles which can be installed by
vibratory means. Of interest for these types of noise emissions is vibration transmitted to nearby
structures. Vibration monitoring may be carried out in response to section 4.5 of this guideline or as part
of proactive vibration monitoring.
6.1 Vibration measurement procedures for basement construction process
This section addresses measurement procedures and vibration assessments related to vibration
measurements conducted during the basement construction process.
6.1.1 Vibration assessments
The acoustic consultant may choose to undertake vibration assessments in accordance with an accepted
standard for vibration management such as those described in:
Australian Standard AS 2187.2-2006 Explosives – Storage and use Part 2: Use of explosives,
Appendix J.
British Standard BS 7385-2 Evaluation and measurement for vibration in buildings — Part 2:
Guide to damage levels from ground borne vibration
German Standard DIN 4150-2 Structural vibration Part 2: Human exposure to vibration in
buildings
The chosen standard and the general approach taken for adherence to prediction and measurement
protocols should be included in a report provided to the City of Gold Coast. If the predicted or measured
vibration levels are in excess of the chosen standard, management actions should be implemented as
appropriate to the standard and the vibration levels.
The equipment for vibration measurements used should be selected by a suitably qualified acoustic
consultant and be listed in detail in any report submitted to City of Gold Coast. All vibration
measurements should be carried out using triaxial geophones or accelerometers.
All vibration equipment should have appropriate laboratory calibration certificates.
The transducer should be mounted appropriately on the surface of the building element being assessed
for vibration, or ground mounted next to the building footprint. It is critical to maintain effective and secure
coupling of the transducers to the ground, building foundations, other structural elements or substrates
on which the vibration measurement is undertaken.
The selection of the transducer/s and mounting arrangement should ensure the resonant frequencies
associated with the transducer in its mounted arrangement are sufficiently different from the main
frequencies to be assessed. The preferred coupling method depends on site conditions:
Where there is a rigid surface (for example, concrete or rock), adhesive or mechanical bonding
can be used.
Where the surface is soil, the transducer can be embedded or fixed to an embedded mount (for
example, 200 mm concrete cube or similarly sized cylinder). If measurements are repeated at the
same location, it is recommended that an embedded mount is used for repeatability. Coupling
with soil spikes in soft soil is not recommended.
Instrumentation used for vibration monitoring should be of sufficient sensitivity and frequency range to
allow comparison with the specified criteria. The transducer orientations should be documented and
included in any reporting with respect to the source of the vibration along with information as to the
mounting or coupling of the transducers.
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P 1300 GOLDCOAST (1300 465 326)
W cityofgoldcoast.com.au
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