Introduction
Exposure to excessive noise is regarded as a major health hazard as it may cause temporary or permanent loss of hearing or tinnitus (ringing, whistling, buzzing or humming in the ears), a distressing condition which can lead to disturbed sleep. The ear may be able to cope with some intermittent exposures to loud noise although there may be some temporary changes to perception or a short-term ringing in the ears. Permanent damage can be caused immediately by sudden extremely loud noises, e.g. from cartridge-operated machines, but permanent hearing loss is usually gradual, caused by prolonged exposure over many years. Young people can be damaged just as easily as the old, but the problem is often not noticed until it combines with natural hearing loss due to ageing. Then the person may find they can no longer no longer hear instructions as easily or follow conversations in a crowd, have trouble using the telephone, and confuse similar words because they find it difficult to catch sounds like 't', 'd' and 's'. Their families may complain about the television being too loud, having to shout or being accused of mumbling.
The Control of Noise at Work Regulations 2005, which came into force on 6 April 2006, apply to almost all work activities. They require employers to prevent or reduce risks to health and safety from exposure to noise at work. The guidance to the Regulations states that, as a simple guide, action to reduce exposure may need to be considered if people have to raise their voices to carry out a normal conversation when about two metres apart; if they use noisy powered tools or machinery for more than half an hour a day; or the work produces very loud impact or explosive sounds. Unwanted noise in general work and study areas may be distracting but is not a health hazard within the meaning of the Regulations.
Potentially hazardous noise exposure is generally incidental to carrying out an activity, for example use of process equipment, power tools or hand tools. The University has identified a number of teaching, research and support activities and areas with potentially significant noise exposures of this type. These include: Faculty workshops e.g. design, technology and engineering workshops; maintenance workshops; plant rooms; IT server rooms; the main reprographics room; and grounds maintenance. Surveys to date have identified few of these have the potential to expose staff or students to hazardous levels of noise.
Noise exposure may also be deliberate, for example playing or listening to music. The University's teaching and research activities, for example in teacher training, music technology and media, potentially have significant noise exposures. Following a two year transitional period, on 6 April 2008 the music and entertainment sector came under the provisions of the Control of Noise at Work Regulations 2005. The University has two Faculties where music is a part of the taught environment; Faculty of Education& Health and Faculty of Architecture, Computing and Humanities. Music activities presently carried out at these Faculties do not exceed the noise regulation action levels. Regular reviews to verify that they remain below the regulatory action levels of noise levels produced during the music periods of teaching in these Faculties will continue. The HSE web pages 'Sound Advice', relating to noise associated with music can be accessed via:
http://www.hse.gov.uk/noise/musicsound.htm.
This Code of Practice sets out the University arrangements to manage and minimise noise exposure, and to provide hearing protection only where technical and organisational measures have not reduced the noise exposure below the action levels in the Regulations or as a short-term measure while other methods of controlling noise are being developed.
The University strives to ensure that an environment conducive to learning, research and other work, is maintained by minimising the adverse impact of noise without placing unreasonable restrictions on development or adding unduly to the costs and administrative burdens. As such, noise at a level that is not considered harmful by the Noise at Work Regulations, may still require consideration.
Noise that is not considered to be harmful under the Noise at Work Regulations, may still impact the ability to maintain an environment that is conducive to learning, research or other work. In these cases, principles of reduction should also be applied and an environmental impact assessment completed. An example would be the introduction of an activity that increased background noise (Typical background noise in an office for example is 55db) either continuously or for regular, repeated intervals. The impact assessment should consider the expected noise level, noise characteristics, area, duration and frequency in order to determine whether it is likely to be a nuisance to those working/studying in the area or for occupants in adjacent buildings. Noise characteristics and levels can vary substantially according to their source and the type so it is important to consider the character of the noise just as much as its level when considering nuisance. Sudden impulses, irregular noise or noise which contains a distinguishable continuous tone all require special consideration as these are likely to increase the scope for complaints.
In most cases the provisions of the Code will apply equally to employees and to students attending lectures and practical sessions; the term 'workers' is used to cover both. Where legal requirements and the Code apply specifically to employees only, that term is used.
Noise Level Measurement
Noise levels are generally expressed in decibels (dB).
Common noise levels would be:
- 50-60 dB - normal conversation
- 80 dB - noisy street
- 100 dB - pneumatic drill
- 125 dB – chain saw
An increase of 3dB may be barely noticeable because of the way ears work, but it means a doubling in the sound intensity. Small changes in numbers can have a far more significant on the ears than they may seem.
Noise Exposure Action Values and Limit Values
The Control of Noise at Work Regulations 2005 require specific action at certain action values and set maximum values which must not be exceeded:
- Lower exposure action value
- exposure averaged over a working day or week of 80 dB
- maximum noise exposure (peak sound pressure) in a working day of 135 dB - Upper exposure action value
- daily or weekly exposure of 85 dB
- peak sound pressure of 137 dB - Exposure limit values – Must not be exceeded
- daily or weekly exposure of 87 dB
- peak sound pressure of 140 dB
These exposure limit values take account of any reduction in exposure provided by hearing protection, i.e. the values are the noise experienced at the ear.
Responsibilities
The University will:
- Ensure workers are not exposed to persistent or instantaneous noise of a kind that would be detrimental to hearing
- Ensure that an environment which is conducive to learning, research and other work is maintained. This includes ensuring that workers are not exposed to excessive, persistent noise that is not defined as harmful under the Noise at Work Regulations
- Keep up with good practice and relevant higher education sector and industry standards for noise control
- Encourage continuous improvements
Faculty Operating Officers and Directors of Professional Services must:
- Ensure that noise is taken into account in risk assessments and reviews for relevant activities. Formal assessment of the risk to health is required where noise levels exceed the lower exposure action value
- Reduce noise exposure levels so far as is reasonably practicable, by reducing the production of noise by applying the principles of reduction as set out in the Noise at work Regulations
- Ensure that those that are exposed to harmful noise are given appropriate information and training
- Consider alternative processes, equipment and/or working methods which will make the work quieter or mean people are exposed for shorter times
- Consider noise levels when purchasing new equipment, and where possible specify and purchase quieter equipment
- Consider noise levels when installing or relocating equipment or activities, and where possible make adjustments to minimise noise production
- Have maintenance arrangements that ensure equipment continues to operate properly and does not become noisier over time
- Request of the Health and Safety Unit that an area of concern is the subject of a noise survey to ascertain if it requires scheduled two-yearly noise surveys
- Provide suitable hearing protection to workers (staff and students), on request, where the personal noise exposure is between the lower and upper exposure action values
- Designate and provide signage for hearing protection zones where exposure to workers is equal to or exceeds the upper exposure action value
- Keep a record of all workers (staff and students) exposed to noise levels exceeding the upper exposure action value
- Inform workers (staff and students) where the personal noise exposure is above the upper exposure action value and provide relevant information
- Provide suitable hearing protection to workers (staff and students) in designated hearing protection zones, and require and supervise its wearing
- Where hearing protection is provided (on request or mandatory), provide suitable training and instruction on correct fitting, maintenance and suitable storage
- Where hearing protection is mandatory, provide suitable supervision to ensure rules are followed and hearing protection is being used properly. Where necessary, the University's disciplinary procedures should be followed
- Refer employees to the Occupation Health and Wellbeing Service for health surveillance (hearing checks) if they are likely to be regularly exposed above the upper exposure action values, or are at risk for any reason, e.g. they already suffer from hearing loss or are particularly sensitive to damage
- Consider and control noise that is not considered to be harmful under the Noise at Work Regulations but may still impact the ability to maintain an environment that is conducive to learning, research and other work
- Ensure an environmental impact assessment is completed before new practices that may increase noise are introduced
Health & Safety Unit will:
- Carry out or arrange a noise survey of all relevant areas every two years, or sooner if problems are reported; keep records of all noise surveys undertaken.
- Provide survey findings to the relevant Faculty Operating Officer/Director of Office and provide advice on any necessary remedial actions
Occupational Health and Wellbeing Service will:
- Arrange for appropriate health surveillance (hearing checks) of relevant employees
Procurement and Business Services will:
- Advise Faculty Operating Officers/Directors of Offices on drawing up suitable contract specifications with the advice of the Health & Safety Unit if necessary
Staff must:
- Use hearing protection provided for mandatory use in designated hearing protection zones
- Attend health surveillance (hearing checks) if requested to do so by the Occupational Health Service
Students are required to:
- Use hearing protection provided for mandatory use in designated hearing protection zones
- Guidance on managing noise exposure and on provision of hearing protection accompanies this Code of Practice
Other useful documents
HSE Guidance on Hearing protection
HSE Brief guide to a noise at work
Code of Practice originally endorsed 2009 – last update April 2018