Work Health and Safety (Managing Noise and Preventing Hearing Loss at Work) Code of Practice 2015

The Work Health and Safety (Managing Noise and Preventing Hearing Loss at Work) Code of Practice 2015 is an approved code of practice made under the Work Health and Safety Act 2011. The Code describes itself as a practical guide to achieving the standards of health, safety and welfare required under the WHS Act and the Work Health and Safety Regulations.

That matters because the Code is more than general guidance. It says that, in most cases, following an approved code of practice would achieve compliance with the relevant health and safety duties in the WHS Act in relation to the subject matter of the code. It is also admissible in court proceedings, and courts may regard it as evidence of what is known about a hazard, risk or control when deciding what was reasonably practicable. Inspectors may also refer to an approved code of practice when issuing an improvement or prohibition notice.

The Code also explains that compliance can be achieved by another method, such as a technical or industry standard, if that method provides an equivalent or higher standard of work health and safety than the code. For a business owner, the practical point is simple: if your workplace has a noise risk, this Code is a benchmark you should know and work from.

The Code states that it applies to all types of work and all workplaces covered by the WHS Act where there is the potential for exposure to noise that can contribute to hearing loss. It provides practical guidance to persons conducting a business or undertaking on how noise affects hearing, how to identify and assess exposure to noise, and how to control health and safety risks arising from hazardous noise.

The foreword also explains that this Code was developed by Safe Work Australia as a model code of practice for adoption by the Commonwealth, state and territory governments. That means businesses should be careful not to assume that the Commonwealth instrument is the only version that matters everywhere in Australia. If your business operates in more than one jurisdiction, or outside the Commonwealth sphere, you should check whether the same model code has been adopted, replaced or supplemented where you operate.

The Code also notes that while the WHS Regulations for noise are limited to managing the risks of hearing loss, the duties in the WHS Act extend to all health and safety risks arising from the conduct of a business or undertaking. So even if you are focused on hearing loss, you should also think about other safety effects of noise, such as difficulty hearing instructions or warning signals.

The Code identifies several duty holders. First, a person conducting a business or undertaking has the primary duty under the WHS Act to ensure, so far as is reasonably practicable, that workers and other persons are not exposed to health and safety risks arising from the business or undertaking. In the noise context, the Code says a PCBU has more specific obligations under the WHS Regulations to manage the risks of hearing loss associated with noise at the workplace.

Those specific obligations include ensuring that the noise a worker is exposed to at the workplace does not exceed the exposure standard for noise, and providing audiometric testing to a worker who is frequently required to use personal hearing protectors to protect the worker from hearing loss associated with noise that exceeds the exposure standard.

The Code also says designers, manufacturers, suppliers, importers and installers of plant or structures that could be used for work must ensure, so far as is reasonably practicable, that the plant or structure is without risks to health and safety. Designers and manufacturers of plant must ensure the plant is designed and manufactured so that its noise emission is as low as reasonably practicable. Designers, manufacturers, suppliers and importers must also provide information about the noise emission values of the plant and any conditions necessary for minimising the risk of hearing loss and other harm.

Officers, such as company directors, have a duty to exercise due diligence to ensure the business or undertaking complies with the WHS Act and Regulations. The Code says this includes taking reasonable steps to ensure the business has and uses appropriate resources and processes to eliminate or minimise risks arising from noise. Workers also have duties. They must take reasonable care for their own health and safety and that of others, and they must comply with reasonable instructions and cooperate with reasonable health and safety policies and procedures. If hearing protectors are provided, workers must use them in accordance with the information, instruction and training provided.

The Code defines the exposure standard for noise as an LAeq,8h of 85 dB(A) or an LC,peak of 140 dB(C). It explains that there are two parts to the standard because noise can either cause gradual hearing loss over time or be so loud that it causes immediate hearing loss.

The LAeq,8h measure is related to the total amount of noise energy a person is exposed to during the working day. It takes account of both the noise level and the length of time the person is exposed to it. The Code says an unacceptable risk of hearing loss occurs at LAeq,8h values above 85 dB(A). The LC,peak measure usually relates to loud, sudden noises such as a gunshot or hammering, and values above 140 dB(C) can cause immediate damage to hearing.

The Code gives a practical explanation of how exposure works. Because the decibel scale is logarithmic, an increase of 3 dB represents a doubling of sound energy. That means the time a worker can be exposed before the standard is exceeded is reduced by half for every 3 dB increase in noise level. The Code's table includes examples such as 85 dB(A) for 8 hours, 88 dB(A) for 4 hours, 91 dB(A) for 2 hours and 121 dB(A) for only 7.2 seconds.

For businesses, this is an important trigger point. A task does not need to last all day to create a hearing risk. Short, intense tasks can exceed the standard very quickly. The Code also says workplace noise should be kept lower than the exposure standard if reasonably practicable, because the standard protects most but not all people.

The Code further notes that noise can create other health and safety effects even where hearing damage is not the main issue. It can interfere with concentration and communication, make it harder to hear warning sounds, and contribute to fatigue and stress. So if your workplace relies on verbal instructions, alarms or close coordination, noise may create broader safety risks that also need attention.

The Code sets out the standard WHS risk management process for hearing loss associated with noise. It says a duty holder must identify reasonably foreseeable hazards that could give rise to the risk, eliminate the risk so far as is reasonably practicable, and if elimination is not reasonably practicable, minimise the risk so far as is reasonably practicable by implementing control measures in accordance with the hierarchy of control. The duty holder must then maintain the implemented control measure so that it remains effective, and review and, if necessary, revise the control measures.

The Code says this should be done through a systematic process that involves identifying sources of noise that may cause or contribute to hearing loss, assessing the risks if necessary, implementing risk control measures, and reviewing those measures. For a business owner, that means noise management should be treated as an ongoing system rather than a one-off purchase of hearing protection.

The table of contents also shows that the Code includes practical sections on how to identify hazards, when a risk assessment should be conducted, who can do a noise assessment, how a noise assessment should be done, and what information should be included in a noise assessment report. Even if you engage a specialist to measure noise, those headings are useful because they tell you what a proper assessment process should cover.

The Code's control chapters follow the hierarchy of risk control. The table of contents lists substitution of plant or processes, engineering controls, isolation, administrative controls, personal hearing protectors, audiometric testing, information, training and instruction, and implementing and maintaining control measures.

That order matters. The Code's approach is that stronger controls are those that remove the noise source, reduce the noise generated, or separate workers from the source. Administrative controls and personal hearing protectors still have a role, but they should not be the only thing considered where more effective controls are reasonably practicable.

In practice, substitution may mean choosing quieter plant or a quieter process. Engineering controls may include changes that reduce noise generated or transmitted by equipment. Isolation may involve separating the source of noise from workers. Administrative controls may include changing how work is organised or limiting time spent in noisy areas. Personal hearing protectors may still be necessary, but the Code treats them as part of a broader control system, not the whole answer.

The Code also includes an appendix on engineering control measures and a noise hazard identification checklist. For many businesses, the most cost-effective time to reduce noise is before plant is purchased or installed, rather than after complaints, testing or hearing damage has already occurred.

The Code places strong emphasis on consultation. It says consultation involves sharing information, giving workers a reasonable opportunity to express views, and taking those views into account before making decisions on health and safety matters. The WHS Act requires consultation, so far as is reasonably practicable, with workers who carry out work for you and are, or are likely to be, directly affected by a work health and safety matter. If workers are represented by a health and safety representative, the consultation must involve that representative.

The Code says consultation with workers and their health and safety representatives is required at each step of the risk management process. It also says you must consult workers when proposing changes that may affect their health and safety, for example when planning to buy new machinery or equipment. Health and safety representatives must have access to relevant information such as noise exposure data and potential control options.

The Code also deals with shared duties. Where more than one person has a work health or safety duty in relation to the same matter, they must consult, co-operate and co-ordinate activities so far as is reasonably practicable. The Code gives a practical example involving an on-hire business whose workers work at other workplaces. In that situation, the on-hire business must consult the host business to determine whether workers could be exposed to hazardous noise and agree on what each will do to control the associated risks.

This is especially important for contractors, subcontractors, labour hire arrangements and shared sites. Noise risks should be discussed before work starts, not left until after a complaint, incident or failed inspection.

The Code states that a PCBU must provide audiometric testing to a worker who is frequently required to use personal hearing protectors to protect the worker from hearing loss associated with noise that exceeds the exposure standard. This is a specific compliance checkpoint for businesses where hearing protection is regularly required because exposure would otherwise exceed the standard.

The table of contents also includes sections on information, training and instruction, and on implementing and maintaining control measures. That reflects an important practical point: even a well-designed control can fail if workers are not trained, if hearing protectors are not used correctly, if equipment is poorly maintained, or if the workplace changes over time.

The Code also requires review of control measures. A control that was effective when first introduced may become less effective because of wear, changed production levels, different materials, altered layouts, new equipment or inconsistent use. Businesses should therefore treat noise controls as part of an active WHS system with assigned responsibility, regular checking and review when circumstances change.

The Code does not only apply to businesses using noisy equipment. It also addresses the role of designers, manufacturers, suppliers, importers and installers. Designers and manufacturers of plant must ensure the plant is designed and manufactured so that its noise emission is as low as reasonably practicable. Designers, manufacturers, suppliers and importers must also provide information about the noise emission values of the plant and any conditions necessary for minimising the risk of hearing loss and other harm.

For many businesses, this makes purchasing and specification a major control point. If you are buying plant, ask for noise emission information before you commit. Compare quieter alternatives, not just purchase price. Keep the supplier information with your safety records so you can show what was considered and what assumptions applied.

If you import, supply or install plant yourself, the Code is a reminder that your role may carry its own duties. Installation choices can affect actual noise levels in use, so the final setup should be checked against the conditions needed to minimise risk.

For most businesses, the best way to use this Code is as a practical checklist for your existing operations and future purchasing decisions. Start by asking whether any task, area or item of plant could expose workers to harmful noise. Then identify who holds duties in your operating model, including host businesses, labour hire providers, contractors and plant suppliers. Next, check whether your current controls rely too heavily on hearing protection and not enough on elimination, substitution, engineering or isolation. Finally, make sure consultation, training, maintenance and review are built into normal operations.

If you are unsure whether exposure could exceed the standard, whether a formal noise assessment is needed, or whether audiometric testing obligations are triggered, that is a sensible point to get specific WHS advice. Businesses operating across Australia should also confirm the local adoption and status of the relevant code before relying on the Commonwealth instrument alone.