Noise Control and Hearing Loss Prevention

TABLE OF CONTENTS

OVERVIEW

3.1 What is the purpose of this chapter? This chapter describes how the U.S. Fish and Wildlife Service (Service) protects employees from hazardous noise levels they may encounter while performing their duties.

3.2 What is the scope of this chapter? 

A. This chapter applies to all Service employees, volunteers, Youth Conservation Corps enrollees, and youth partner hires aged 18 years or older whose duties require them to:

(1) Work in or visit operations that cause hazardous noise levels of 85 dBA or greater for an 8-hour Time Weighted Average (TWA); or

(2) Work with ototoxic agents that may contribute to hearing loss.

Throughout this chapter, we use the term “employees” to refer generally to those described in section 3.2A.

B. Project Leaders/Supervisors/Facility Managers have many responsibilities for this program. For simplicity, throughout this chapter we refer to them collectively as Project Leaders.

3.3 How does the Service ensure the safety and health of employees who may be exposed to elevated noise levels? To meet health and safety requirements related to hazardous noise and ototoxic agents, we:

A. Monitor employees whose duties may lead to exposure to hazardous noise and ototoxic agents for signs of concern; and

B. Establish and implement procedures and noise controls in accordance with the Department of the Interior’s (Department) Departmental Manual (DM) (485 DM 31 – Departmental signature pending), to prevent or minimize noise exposures below the:

(1) Occupational Safety and Health Administration’s (OSHA) Permissible Exposure Limit (PEL) of 90 dBA, and 

(2) American Conference of Governmental Industrial Hygienists (ACGIH) Threshold Limit Value of 85 dBA for an 8-hour TWA.

3.4 What are the authorities for this chapter? 

A. ACGIH, Threshold Limit Values Guidelines.

B. American National Standards Institute (ANSI) Standards for Noise and Hearing (ANSI Z12).

C. Basic Program Elements for Federal Employee Occupational Safety and Health Programs and Related Matters (29 CFR 1960).

D. The Department's Occupational Medicine Program Handbook, Tabs 8 (Specific Medical Program Requirements) and 12(E2) (Specific Program Criteria).

E. Executive Order 12196, Occupational Safety and Health Programs for Federal Employees.

F. Occupational Safety and Health Act, Federal Agency Safety Programs and Responsibilities (Public Law 91-596, Sec. 19).

G. OSHA Standards, Occupational Noise Exposure (29 CFR 1910.95 and 1926.52).

 H. 485 DM 17, Industrial Hygiene Program.

3.5 What terms do you need to know to understand this chapter?   

A. Action level for hearing protection. A noise level of 85 dBA sound pressure level (see section 3.5K).

B. Action level for noise (action level). As designated by OSHA, a noise level of 85 dBA or greater for an 8-hour Time-weighted average (TWA).

C. Audiogram. The chart, graph, or table produced by an audiometric test that shows a person’s hearing threshold levels as a function of frequency as measured at 500, 1000, 2000, 3000, 4000, 6000 and 8000 Hertz (Hz).

D. dBA (A-weighted decibel). The frequency-weighted sound pressure band that best represents the way the human ear perceives sound. It is measured in decibels (dB) with a standard sound level meter at slow response.

E. Noise Control and Hearing Loss Prevention Program. A written program for employees who are exposed to noise beyond the action level for noise that complies with OSHA and Department-mandated standards. Typically includes annual audiograms, hearing protection, and training. 

F. Noise dosimeter. A sound level meter that measures noise levels over a period to calculate a person’s overall noise exposure dose and TWA.

G. Noise Reduction Rating (NRR). A measurement made in a laboratory that determines the effectiveness of hearing protection devices when properly fitted. The NRR is given in dBC and must be changed to dBA by subtracting 7, to determine the level of protection provided. The Service recommends hearing protection devices with a 50 percent NRR.

H. Ototoxic agents. Chemicals (including medications) that are classified as ear poisons. Ototoxins may damage the inner ear either with or without noise exposure depending on the mode of action, often impairing hearing and balance. Examples include carbon monoxide, toluene, lead, xylene, aspirin, and chemotherapeutic drugs.

I. Permissible Exposure Limit (PEL). The noise level at which the Service must implement engineering controls (dBA of 90 for an 8-hour TWA) in the performance of an activity or use of equipment.

J. Sound level meter. An instrument designed to measure acoustic sound pressure and report it as a sound pressure level. 

K. Sound Pressure Level (SPL). A measurement of the noise level ratio (volume) expressed in decibels (dB).

L. Standard Threshold Shift (STS). A change in hearing threshold of an average of 10 dBA or more at the 500, 1000, 2000, 3000, 4000, 6000 and 8000 Hertz (Hz) frequency bands in either ear when compared to the baseline audiogram. 

 M. Time-Weighted Average (TWA). The average of noise levels during a given time, typically 8-hours to represent the standard workday. 

RESPONSIBILITIES

3.6 Who is responsible for noise control and hearing loss prevention? See Table 3-1.

Table 3-1: Responsibilities for Noise Control and Hearing Loss Prevention

IDENTIFYING HAZARDOUS NOISE ENVIRONMENTS

3.7 What noise levels should Project Leaders and employees be aware of?

A. Elevated Noise Levels. Employees must wear hearing protection in the workplace to prevent injury to hearing when the noise level is 85 dBA or more. Any noise levels over 85 dBA can cause damage, particularly if the exposure is chronic. Exposure to impulsive or impact noise must not exceed 140 dB peak sound pressure level. See section 3.12 for more information on hearing protection equipment.

B. OSHA Action Level for Noise. OSHA requires us to enroll any employee exposed to hazardous noise levels at the action level in a hearing loss prevention program (i.e., hearing conservation program). More information on the requirements of a hearing loss prevention program can be found in the following section.

C. OSHA Permissible Exposure Limit (PEL) for Noise. Hazardous noise is any noise level beyond the OSHA PEL for Noise, which is 90 dBA over an 8-hour TWA. If working for more than 8 hours, the PEL must be adjusted for that period. The Project Leader of any Service facility or workplace with operations or equipment that creates hazardous noise must implement noise control standards in accordance with section 3.11 of this chapter. You can find more information on the Service’s Industrial Hygiene SharePoint site.

Table 3-2: Hazardous Noise Levels and Protection Requirements

3.8 What job tasks or equipment operations typically require hearing loss prevention? Exhibit 1, Hazardous Noise Producing Operations and Equipment, provides a non-exhaustive list of operations and equipment that will likely require employees to use hearing protection, unless testing at the operator’s ear indicates noise levels below 85 dBA. Contact a JAO Safety Manager/Specialist/Industrial Hygienist for additional guidance.

3.9 How do Project Leaders determine if a hearing loss prevention program is necessary? If operations/equipment generate noise exposure levels (determined by a noise dosimeter) over the action level, the Service must conduct audiometric testing to determine the employee’s hearing levels. When noise dosimetry data is not available, employees can use a sound level meter to determine noise levels. Reference the permissible noise exposure levels in Exhibit 1, Table 1 as a guide in determining allowable exposure times.

A. Noise Hazard Assessment. Project Leaders must first identify any equipment or operations that are noise hazards. This includes equipment/operations you consider “noisy” through experience or where you must raise your voice to communicate.

B. Exposure Evaluation. Project Leaders must then ensure that equipment noise levels (by sound level meter) and personal exposure levels (by noise dosimeter) are taken and documented by someone trained to perform this task. Contact a JAO Safety Manager/Specialist/Industrial Hygienist to conduct a noise hazard assessment. The Safety Manager/Specialist/Industrial Hygienist can also provide guidance on contracting the work to a professional company who performs these evaluations.

(1) The results of the noise hazard assessment determine how Project Leaders must implement the noise control and hearing loss prevention requirements in this chapter. 

(2) If the evaluation shows that an employee is exposed to a noise level exceeding the action level (see section 3.7B), the Project Leader must notify the employee in writing within 21 days and enroll them in a hearing loss prevention program. 

NOISE CONTROL AND HEARING LOSS PREVENTION

3.10 How do Project Leaders inform employees and others of hazardous noise levels? 

A. The Project Leader must post a copy of the OSHA Noise Standard (29 CFR 1910.95) in the workplace. In addition, the Project Leader must ensure that a sign or label with the following language is clearly posted on equipment and at entrances to areas where people may be exposed to hazardous noise levels: 

                  WARNING
                NOISE AREA
           HEARING HAZARD
USE OF HEARING PROTECTORS
                 REQUIRED

B. If employees are or may be exposed to noise in excess of the action level at least once a year, Project Leaders must notify these employees about their enrollment in a hearing loss prevention program and the requirements of that program. 

3.11 How do Project Leaders reduce the impact(s) of hazardous noise levels? Project Leaders must develop controls for work environments with continuous noise exposures greater than OSHA’s PEL. Consult with your JAO Safety Manager/Specialist/Industrial Hygienist or the Infrastructure Management Division (IMD) for engineering assistance. Controls to address noise exposure levels may be any one or a combination of the below. Exhibit 2, Noise Exposure Reduction: Hierarchy of Controls provides further information about these options.

A. Engineering Controls - Eliminating, enclosing, or dampening the noise.

B. Administrative Controls - Replacing equipment, rotating personnel, etc. to reduce the impact of hazardous noise levels.

C. Personal Protective Equipment - Issuing hearing protection devices, as a last resort.

3.12 What are the different types of hearing protection devices? There are two common types of hearing protection devices that come in a wide variety of styles—earmuffs and ear plugs. The Project Leader provides employees with hearing protection, as well as training on how to use them, to limit their exposure to hazardous noise levels. They must provide employees with a variety of types and brands for maximum protection. An employee, with approval from their Project Leader, may use such devices in other noise environments not meeting the hazardous noise level criteria for hearing protection.

A. If you work in an environment where noise levels are equal to or greater than 85 dBA SPL, you must use appropriate hearing protectors.

B. The Service also requires visitors and employees working near operations or equipment generating hazardous noise levels to use hearing protectors. 

C. Hearing protection devices must reduce noise below the hazardous level. Hearing protection packaging describes the noise reduction rating (NRR). The Service encourages using hearing protection that provide the highest NRR while ensuring a comfortable fit. 

D. Do not use hearing protectors with a noise reduction rating of less than 22 dB unless operations absolutely require the ability to hear human voices or radio traffic (e.g., Law Enforcement, Fire personnel). 

E. Consult your JAO Safety Manager/Specialist/Industrial Hygienist for guidance on the selection of appropriate hearing protectors.

F. Exhibit 1 provides a list of equipment and operations that generate noise levels that may require the use of hearing protection.

MEDICAL EVALUATION REQUIREMENTS

3.13 Who can perform medical evaluations for a hearing loss prevention program? 

A. Only an audiologist, otolaryngologist, physician, or technician who is certified by the Council of Accreditation in Occupational Hearing Conservation (CAOHC) can administer audiograms.

B. A Service Industrial Hygienist who is CAOHC certified can conduct audiograms at no cost to the employee or can help arrange audiograms with local providers at the station’s cost. Contact a Service Industrial Hygienist for guidance.

C. Employees must be free from exposure to hazardous noise for at least 14 hours before receiving an audiogram. 

3.14 What is the overall process for hearing loss prevention medical evaluations?

A. Employees exposed to hazardous noise levels must have their hearing evaluated by a medical professional or CAOHC certified technician as a baseline when beginning work in a hazardous area and annually after that. Exit audiometric testing must be performed when the employee separates from the Service.

(1) Baseline audiometric testing. Employees who work in environments known or suspected of having hazardous noise levels must be enrolled in a hearing loss prevention program and receive a baseline audiogram within 6 months of employment or relocation to, or beginning work in, a workplace with hazardous noise levels.  

(2) Annual audiometric testing. Employees in a hearing loss prevention program must get an annual audiogram. The results are compared against baseline data to detect the presence of a Standard Threshold Shift (STS). 

     (a) If an employee receives audiograms through a medical standards program (i.e., Law Enforcement, Wildland Fire, and Diving), they must notify the medical professional that the hearing test must meet OSHA requirements for a hearing loss prevention audiogram. Audiograms in these programs are not annual.  

     (b) These employees must schedule additional audiograms for the years when they do not have regularly scheduled medical exams. 

(3) End of employment (exit) audiometric testing.Permanent employees in a hearing loss prevention program who are leaving the Service must take an audiometric test. The test is optional for seasonal and temporary employees, employees who have been with the Service for less than a year, and volunteers. 

     (a) The employee must take the test before the last day on duty. 

     (b) Test results may be used to evaluate any post-employment medical conditions claimed because of exposure to hazardous noise levels during employment.

B. The medical professional or CAOHC certified technician documents the evaluation using FWS Form 3-2286 and provides the medical record to the employee and the Project Leader.

3.15 What happens if a Standard Threshold Shift (STS) is identified?

A. When an STS is detected by a medical professional (e.g., audiologist), the medical professional must complete the following actions:

(1) For all affected employees: Notify the employee in writing within 21 days. The notification must include a copy of the audiogram (thresholds by frequency and ear), its interpretation, and baseline information consistent with OSHA 29 CFR 1910.95, Appendix F (including age corrections, if applicable).

(2) For employees who are pilots: Notify the employee in writing as soon as practicable, but no later than 14 days after completing the audiogram, when the employee is a pilot who must maintain Federal Aviation Administration (FAA) Medical Certification. The notification must include a copy of the audiogram (thresholds by frequency and ear), its interpretation, and baseline information consistent with OSHA 29 CFR 1910.95, Appendix F (including age corrections, if applicable). An STS does not automatically mean the employee fails the FAA hearing standard under 14 CFR Part 67. Early notification allows pilots time to evaluate any impact on FAA medical certification and, if needed, complete any permitted retest within OSHA’s 30-day retest window. 

B. If an STS is identified by a Service Industrial Hygienist, the Industrial Hygienist must notify the employee and the employee’s Project Leader (supervisor) and direct the employee to a medical professional for further evaluation. The Industrial Hygienist must also forward the appropriate records to the servicing medical records office (see section 3.17B).

C. If an employee receives an evaluation by an outside medical professional (e.g., audiologist) and is advised of an STS identification by the outside medical professional, the employee must notify their Project Leader (supervisor) and forward the appropriate records to the servicing medical records office (see section 3.17B).

D. Once the Project Leader receives the findings, they must meet with the employee to discuss them.  

E. If testing reveals an STS, the Project Leader (Supervisor) must:

(1) Contact the appropriate JAO Safety Manager/Specialist/Industrial Hygienist to discuss the employee’s audiogram findings, and

(2) Work with JAO Safety Manager/Specialist/Industrial Hygienist to provide the following information to an audiologist:

     (a) The Service and OSHA hearing loss prevention regulations,

     (b) The employee’s baseline and most recent annual audiogram findings,

     (c) Any background dBA Sound Pressure Level (SPL) measurements from the audiometer test room, and

     (d) Any audiometer calibration records. 

TRAINING AND RECORDKEEPING REQUIREMENTS

3.16 What are the training requirements for employees in a hearing loss prevention program?

 A. The Service must inform and train every employee in a hearing loss prevention program on the health effects caused by hazardous noise levels and how to protect themselves from exposure.

 B. Employees must take hearing loss prevention training annually in DOI Talent when enrolled in a hearing loss prevention program. 

3.17 What are the recordkeeping requirements for a hearing loss prevention program? 

A. Project Leaders must:

(1) Retain noise exposure data and equipment calibration documentation for a minimum of 2 years. This complies with 29 CFR 1910.95, OSHA’s Occupational Noise Exposure standard;

(2) Retain copies of audiogram-related evaluations (e.g., physician opinions) for, at a minimum, the length of employment;

(3) Ensure hearing loss prevention training for employees is current; and

(4) Document when volunteers, Youth Conservation Corps enrollees, and youth partner hires complete hearing loss prevention training (i.e., hearing conservation). 

B. The servicing medical records office must retain all audiograms, related evaluations (e.g., physician opinions), audiometric reports (FWS Form 3-2286), and audiometric equipment calibration requirements for, at a minimum, the length of employment of a person in the hearing loss prevention program (see 242 FW 4).

C. The Service must collect and maintain records containing personal information (e.g., medical evaluations, physician statements, etc.) in compliance with 5 U.S.C. 552a (The Privacy Act of 1974). Employees tasked with storing and maintaining such records must read and be familiar with OPM/GOVT-10, Employee Medical File System Records. These records:

(1) Are sensitive and protected by the Privacy Act (see 204 FW 1 for more information on the Privacy Act);

(2) Must only be available to personnel on a need-to-know basis. All records required by this section must be provided upon request to employees, former employees, representatives designated by the individual employee, and the Assistant Secretary;

(3) If electronic, must be password protected and only used in accordance with the routine uses identified in OPM/GOVT-10; and

(4) If hard copy, protected in a locked file and locked room that is available only to personnel on a need-to-know basis in accordance with OPM/GOVT-10.