Noise Management

Policy

This policy outlines the health, safety and wellbeing requirements relating to the prevention and management of excessive noise in schools.

Summary

• Reasonable steps must be taken to prevent or minimise exposure to hazardous noise that can cause damage to hearing.
• Common examples of noise hazards in schools include musical instruments and school productions, woodwork, metalwork, and gardening and maintenance equipment.
• The Noise Management Procedure explains how to identify excessive noise and includes steps schools can take to manage the associated risks.
• New and complex noise hazards must be included in the school’s OHS risk register.
• The OHS advisory service and regional OHS support officers can provide free advice in relation to managing exposure to hazardous noise.

Details

Noise induced hearing loss from exposure to noise at hazardous levels can accumulate over time. Once hearing loss has occurred it is irreversible. Reasonable steps must be taken to prevent or minimise exposure to hazardous noise that can cause damage to hearing.

This policy does not cover the purchasing of new equipment or the management of contractors in relation to noise. Refer to the Purchasing Safe Goods Policy and Contractor OHS Management Policy for this information.

Roles and responsibilities in identifying and managing excessive noise exposure

Under the Occupational Health and Safety Act 2004 (Vic), managing hazards and preventing injuries is a shared responsibility between the department, the principal and/or their delegate, and school staff.

Department roles and responsibilities

The department must maintain, so far as is reasonably practicable, a safe and healthy working environment for employees that is without risk.

Principal and/or delegate roles and responsibilities

The principal and/or their delegate, in consultation with the health and safety representative (HSR) and/or deputy health and safety representative (DHSR) if elected, and relevant school staff, must identify and manage excessive noise to prevent noise induced hearing loss in school staff.

School staff roles and responsibilities

School staff must take reasonable care for their health and the safety of others who may be affected by their actions or omissions while at work, including safe use of equipment, using personal protective equipment (PPE) and reporting noise hazards.

Safety is a shared responsibility and everyone, including students, has a role to play.

Key requirements for schools to identify and manage excessive noise exposure

Schools must:

• incorporate noise identification and management into an ongoing approach that promotes health, safety and wellbeing
• identify and assess the risks relating to new or complex noise hazards using an OHS risk assessment (DOCX) and document findings in the school’s OHS risk register
• consult with school staff and HSRs to identify and manage workplace noise risks
• investigate any reports of excessive noise or hearing loss when they occur
• review and maintain records of any assessments, hearing test or noise monitoring that occurs
• ensure high-risk school staff receive audiometric testing to monitor hearing health
• display hearing protection signs and labels where required
• provide hearing protection equipment (HPE) such as ear plugs or earmuffs and training on the appropriate use of HPE.

The Noise Management Procedure (in the Procedure tab) contains detailed, step-by-step instructions for schools to meet these key requirements.

Department supports for schools

Central and regional offices provide a range of supports and services to assist principals and school staff to be safe and well, including access to the OHS advisory service and regional OHS support officers who can provide free advice in relation to managing exposure to hazardous noise. The OHS Advisory Service can also be contacted to help schools organise audiometric testing and audiological examinations for staff, when required.

Using eduSafe Plus to report and manage hazards identified allows OHS support officers to provide assistance and advice. Guidance for reporting and managing hazards on eduSafe Plus is located in the How to report a workplace hazard guide (PDF) on the knowledge base in eduSafe Plus. For more general information on OHS risk management, refer to the OHS Risk Management Policy.

Related definitions

Annoyance noise
Also referred to as ‘nuisance noise’ is noise that is below the noise exposure standard and is unlikely to pose a risk to hearing. Annoyance noise may interfere with communication, annoy or distract people, for example, photocopiers or telephone conversations.

Audiological examinations
If hearing loss is identified during routine audiometric testing an audiological exam is conducted. It is a series of tests used to determine the type and degree of hearing loss.

Audiometric test
A routine hearing test that measures the range and sensitivity of a person's sense of hearing by means of a specialised electro-acoustic instrument (audiometer).

Decibel (dB)
Sound is measured in units called decibels. The higher the decibel level, the louder the noise.

Excessive noise
Exposure to excessive noise over a long period of time will damage a person’s hearing. The noise exposure standard outlines the maximum acceptable exposure levels for noise in the workplace.

Hazardous noise
Regulations in Victoria limit exposure to 85 dB averaged over 8 hours. Exposure to noise levels over this will lead to permanent damage and are considered hazardous. To determine if noise is at a hazardous level, workplace monitoring can be undertaken.

Hearing protection equipment (HPE)
Hearing protectors (also called hearing protection equipment (HPE)) are devices that can be worn in or over the ear to prevent noise induced hearing loss.

Noise exposure standard
The noise exposure standard outlines the maximum acceptable exposure levels for occupational noise in the workplace. The exposure standard states that occupational noise must not exceed 85 dB averaged over an 8-hour period or a maximum (peak) noise level (C) of 140 dB(C). Noise levels above these are hazardous and are deemed unsafe.

Noise induced hearing loss (NIHL)
A permanent hearing disorder typically caused by exposure to excessive noise over a prolonged period.

Related policies

• Contractor OHS Management
• OHS Management System (OHSMS) Overview
• OHS Risk Management
• Plant and Equipment Management
• Purchasing Safe Goods

Related legislation

• Occupational Health and Safety Act 2004 (Vic)
• Occupational Health and Safety Regulations 2017 (Vic)
• WorkSafe Victoria Compliance Code: Noise, Edition 2, December 2019

Noise Management Procedure

This Noise Management Procedure sets out the practical step-by-step instructions that must be followed to implement the Noise Management Policy. This procedure must be implemented in consultation with the health and safety representative/s, affected school staff and your health and safety committee (if established) or equivalent staff forum.

It contains the following chapters:

1. Preparing, planning and ongoing management of noise
2. Understanding noise hazards and risks
3. Identifying and assessing noise hazards and risks
4. Controlling noise exposure risks
5. Reporting and record keeping

1. Preparing, planning and ongoing management of excessive noise

To effectively manage noise as part of an ongoing health, safety and wellbeing management approach, principals and/or their delegates must undertake the following actions outlined in this chapter.

Consult

Principals and/or their delegates must consult on noise hazards, risks and incidents by implementing the OHS Consultation and Communication Policy, ensuring effective systems are in place, including regular communication forums.

Document

Principals and/or their delegates must document relevant noise risks and controls within their OHS risk register, by implementing the OHS Risk Management Policy to ensure effective monitoring and reviewing processes are in place, including workplace inspections, risk assessments and maintenance of the OHS risk register. These documents must be retained in accordance with the Records Management – School Records Policy.

Monitor and review

Principals and/or their delegates must monitor and review noise risks and controls by implementing the OHS Planning Policy, including activities in the OHS Activities Calendar.

Manage hazards and incidents

Principals and/or their delegates must manage noise hazards and incidents, including through eduSafe Plus, by implementing the Managing and Reporting School Incidents (Including Emergencies) Policy.

2. Understanding noise hazards and risks

There are activities undertaken in schools that may expose staff to elevated levels of noise that could pose a risk to hearing loss. This risk of hearing loss increases depending on the level of noise and length of exposure time.

There are 2 types of noise which staff may be exposed to:

• Annoyance noise may interfere with communication or pose distraction. Annoyance noise may need to be assessed and controlled to avoid negatively effecting staff concentration and wellbeing. Annoyance noise is unlikely to pose serious risk of noise induced hearing loss.
• Excessive noise is noise that exceeds those levels defined by Compliance code: Noise – WorkSafe Victoria and could pose a risk to hearing loss. This risk may increase depending on the level and length of time of exposure to the excessive noise.

This procedure focuses on identifying, assessing and addressing excessive noise hazards and risks.

Exposure to excessive noise (either a single very loud noise or by repeated exposure to various loud noises over a period of time) can cause damage to the inner ear, causing hearing loss. Once damage occurs it cannot be repaired, however, it can be prevented.

The exposure standard states that occupational noise must not exceed 85 decibels (dB) averaged (A) over an 8-hour period or a maximum (peak) noise level of 140 dB. Noise levels above these are hazardous and are deemed unsafe.

*Decibels (dB) are measured in a logarithmic scale. Exposure recommendations to noise over 80 dB significantly decrease even though the level of dB only go up incrementally.

3. Identifying and assessing noise hazards and risks

The principal and/or their delegate, in consultation with the health and safety representative and affected school staff, must:

• identify which tasks, equipment or processes produce excessive noise
• identify staff that are at risk of exposure.

Noise hazards may be identified when:

• talking to staff about how work is carried out and asking about any problems they may have
• undertaking regular observations of the workplace
• observing plant and equipment when in use
• reading and following manufacturer’s instructions for the use of plant or equipment – many older models of equipment have instruction booklets online if originals have been lost.

Noise can be a problem in a school if, for example, any of the following occurs:

• staff have to raise their voice to communicate at a distance of one metre apart
• staff have a temporary reduction in hearing or ringing in the ears after leaving work for the day.

Common activities and environments that may expose staff to excessive noise levels may include, but are not limited to:

• technology rooms where power tools and other workshop equipment are used (for example, band saws)
• hospitality rooms where blenders or cooking equipment may be used
• music rooms – playing a music instrument, the use of amplifiers or a large orchestra
• construction work within the school or adjacent to the school, such as demolition, excavation, use of power tools
• maintenance work, such as the use of a sander, drill or other power tools
• gardening activities, such as the use of a leaf blower, lawn mower or whipper snipper.

In all instances, the principal and/or their delegate must record the identified excessive noise in the ‘Hazard Description’ column of the OHS risk register (XLSX), assess the level of risk, and document risk controls.

Assessing the risks using workplace monitoring

The principal and/or their delegate in consultation with the health and safety representative and affected school staff, must identify and assess the risks relating to new or complex noise hazards using an OHS risk assessment (DOCX). In some instance this may provide enough information regarding the level and duration of exposure to noise or the impact to a person's hearing.

To accurately determine the level of risk, the principal and/or their delegate may need to consider specific workplace monitoring and quantitative noise assessment by engaging the services of a qualified occupational hygienist with support from the OHS Advisory Service. Specific monitoring data will provide results on the actual level of exposure and the effectiveness of current controls, which can be used as a representative sample to compare against legislated maximum exposure standards.

To determine if monitoring is required, the principal and/or their delegate must ensure that consideration is given to:

• the level (loudness) of the noise
• how many people are exposed and their length of exposure to the noise
• how often the situation occurs.

Noise monitoring and exposure limit findings

Once the monitoring is completed, the reported findings must be provided to the principal and/or their delegate. The principal and/or their delegate is responsible for ensuring the implementation of the recommendations in the report to reduce the risk of exposure to school staff and document the controls in the schools OHS risk register (XLSX).

The principal and/or their delegate can contact the OHS Advisory Service on 1300 074 715 if they require assistance to interpret the findings or recommendations in reports provided.

4. Controlling noise exposure risks

Many noise risks can be eliminated or minimised by assessing tasks and equipment prior to use and selecting the least hazardous option.

Below are some practical suggestions to eliminate or minimise exposure to excessive noise risks.

Where construction work is being undertaken at or near the school:

• sign post noisy areas and restrict access
• use barriers or enclosures to isolate noise where possible.

When using loud items while teaching, that is, during technology or music classes:

• sound proof/insulate noisy rooms/areas (for example, installation of soft furnishing, carpeting, wall panels, acoustic dividing screens)
• limit the duration of exposure to excessive noise through task rotation
• sign post noisy areas and restrict access.

When undertaking gardening and maintenance:

• avoid the use of noisy items/machinery and remove them from the school where possible
• replace noisy lawnmowing machines by purchasing new machines fitted with a low tone muffler
• develop safe work procedures for identified high risk tasks/activities
• limit the duration of exposure to excessive noise through task rotation
• schedule maintenance or gardening outside of school hours (for example, on weekends, after hours or during school holidays)
• use barriers or enclosures to isolate noise
• sign post noisy areas and restrict access
• ensure training on fitting, use and maintenance of hearing protection equipment is available.

Noise from certain activities or environments is more difficult to control (for example, lawnmowing, playing an instrument or using a drill) and may always require hearing protective equipment (HPE).

If staff are still exposed to noise that exceeds the noise exposure standard after implementing the controls, the principal and/or their delegate must put in place controls that may include:

• providing hearing protection equipment (earplugs, earmuffs)
• training on the appropriate use and maintenance of hearing protection equipment
• identifying when and where hearing protection should be worn:
  • including early identification by signs and labelling of plant or safe work procedures of when and where hearing protection is to be worn
• providing audiometric testing:
  • this must be performed for school staff who require hearing protection to control their exposure to noise above the standard (for example, gardener, music teacher)
  • audiometric testing must be provided within 3 months of a staff member commencing and every 2 years thereafter
  • audiometric testing should also be provided when reasonably requested by the HSR of the designated working group of which the staff is a member
• organising for a staff member to undergo an audiological examination, if 2 audiometric tests indicate a reduction in hearing levels equal to or greater than 15 decibels (dB) at 3,000, 4,000 or 6,000 Hz over a period not exceeding 2 years.

Schools may contact the OHS Advisory Service on 1300 074 715 for support and guidance on audiometric testing.

Affected staff must:

• correctly wear hearing protection when carrying out work that exposes them to hazardous levels of noise
• participate in audiometric testing within 3 months of starting a role where exposure to hazardous levels of noise (for example, exceeds standards) has been identified, and be re-tested every 2 years.

The principal/delegate must document relevant noise risks and controls within their OHS risk register, to ensure effective monitoring and reviewing processes are in place. Refer to the OHS Risk Management Policy and procedure for further information.

5. Reporting and record keeping

If a staff member is concerned that their hearing has been impacted due to exposure to noise, they must inform the principal and/or their delegate immediately to organise audiometric testing. Hazards, incidents and near misses involving exposure to noise must be reported in eduSafe Plus. eduSafe Plus can help schools with allocation of tasks and management of hazards.

Outcomes of the noise monitoring should be captured in the OHS risk register (XLSX) and regularly reviewed. Results of audiometric testing and noise monitoring assessments should be retained as per the Records Management – School Records Policy.

For more information on reporting hazards and incidents, refer to the Managing and Reporting School Incidents (Including Emergencies) Policy.

Resources

Guidance

• Model Code of Practice: Managing noise and preventing hearing loss at work, July 2020
• WorkSafe Victoria Compliance Code: Noise, Edition 2, December 2019

Templates and forms

• Purchasing safe goods checklist (DOCX) – to be completed when purchasing, hiring, leading, or when donated goods with a potential OHS (for example, noise) risk are introduced to the workplace
• Risk assessment template (DOCX) – completed for tasks that are noisy and may pose an excessive noise risk and require further action to make the task safe
• Safe work procedure template (DOCX) – completed for when a task requires hearing protection

Useful websites

Safe Work Australia – Noise: Overview