Health and Safety
Executive / Commission
Freedom of information
SIM 01/2008/02
Author unit / section: HSE Agriculture & Food Sector (Food Section)
Target audience: All HSE and LA visiting staff
This SIM highlights the need to reduce exposure to flour dust and dust from enzyme-containing flour additives in bakeries This SIM should be read in conjunction with SIM 01/2008/01 Inspection of Food Factories 2008/09.
1 To reduce exposure to flour dust ad dust from enzyme-containing flour activities in bakeries.
2 Although the overall incidence rate of occupational asthma has decreased since 1999, the rate of new cases amongst bakers as reported by occupational physicians (SWORD) is now the highest of any occupation in any industry.
3 Furthermore, research has shown that occupational exposure levels for flour dust in bakeries have remained stubbornly high and not shown the downward trend found for harmful dusts in other industries since the mid 1980’s.
4 Flour dust is a hazardous substance as defined under the Control of Substances Hazardous to Health (COSHH) Regulations 2002 (as amended). It is a respiratory sensitiser and is known to cause allergic rhinitis and occupational asthma. Flour dust is also an irritant and may give rise to short term respiratory, nasal and eye symptoms. It may provoke an asthmatic attack in individuals with pre-existing disease and lead to chronic bronchitis.
5 The Workplace Exposure Limit (WEL) for flour dust is 10mg/m3 (8-hr TWA) with a Short Term Exposure Limit (STEL) of 30mg/m3 (15 minute reference period). Because flour dust is a recognised asthmagen, exposures should be reduced to as low as reasonably practicable below these limits. See SIM 01/2007/09 Workplace exposure limit for flour dust.
6 Flour, flour additives and spices may also act as skin irritants but perhaps more commonly the handling of moist doughs, frequent hand washing, and exposure to detergents are the predominant cause of irritant contact dermatitis within the bakery industry. Flour is also a skin sensitiser.
7 There are about 4,500 small craft bakeries in the UK, each employing typically between 5 and 25 people, 350 medium sized bakeries (employing between 25 and 100 people) and 150 large plant bakeries (employing more than 100 people). About 27 000 workers are exposed to flour dust in the baking and associated trades.
8 Following on from the DRP inspection initiatives in bakeries in 2006/07 and 2007/08, inspectors visiting bakeries during 2008/09 are encouraged to assess the control of exposure to flour dust.
9 Inspection should concentrate on small and medium sized bakeries as a high proportion of plant bakeries were inspected as part of the 2006/07 intervention. However it may be worth including plant bakeries that are known poor performers. Inspection to bakeries operated by Greggs should be avoided unless they are part of the Large Organisations Partnership Pilot (LOPP) initiative.
10 It should be remembered that bakers have been made aware of the flour dust/asthma issue in the past, not only by HSE but also through their trade associations and the trade press. Poor compliance should result in enforcement action being taken in accordance with the HSC Enforcement Policy Statement and the Enforcement Management Model.
11 Any enforcement action should focus on reducing exposure to flour dust and achieving adequate control as described in SIM 01/2007/09. Action should reflect the new emphasis in Regulation 7 of COSHH 2002 (as amended) to apply the principles of good control practice when controlling exposure to substances hazardous to health – Schedule 2A provides details on what is required.
12 The primary control where a WEL is in force is to prevent the material becoming airborne in the first place. In larger bakeries engineering controls and good working practices should reduce dust exposures to acceptable limits. There is normally scope for using LEV at the dustier processes e.g. mixing, sieving, weighing. Such control should also be considered in smaller bakeries where practicable. Advice on monitoring LEV systems is contained in SIM 03/2008/05. Other simple controls can be effective such as lids on mixing vessels and vacuuming spills rather than brushing.
13 Vacuum cleaners should meet the standard described in the HSE Guidance – Prevention of dust explosions in the food industry – Appendix 1 – Guidance on the selection of vacuum cleaners for low combustibility organic granules and dusts .
14 In small bakeries without automation and where bakers perform a range of tasks, engineering controls may not be reasonably practicable and greater reliance should be placed good working practices and personal behaviour and, particularly for the dustier tasks, respiratory protection. Simple changes in work practices can greatly reduce exposure.
15 Information on controls and good working practices can be found in HSE publication HSG233 A Baker’s Dozen which includes the ‘Ten top tips for bakers’. Also relevant are the COSHH Essentials flour control guidance sheets, the Federation of Bakers booklet Guidance on Dust Control and Health Surveillance in Bakeries (also known as the Blue Book) available from office libraries, and SIM 01/2001/56 MEL for flour dust.
16 Health surveillance must be carried out, as flour dust and improvers including amylase are respiratory sensitisers. The level of surveillance required is described in HSG233, Chapter 2. One of the most common responses from smaller bakers is that professional help and advice is difficult to obtain. To some extent this does seem to reflect reality and Occupational Health Inspectors should be contacted for assistance and support as necessary.
17 Advice on choosing a competent health and/or safety professional can be found on the BOHS website.
18 Inspectors may also refer to the Dermatitis Topic Inspection Pack for specific information on dermatitis issues, also Food Information Sheet 17 Occupational dermatitis in the catering and food industries.
19 Please note the Health and Safety Supplements relating to general site visits, available on the Intranet under ‘Your Health and Safety’.
20 The topic packs on Migrant Working, Duty to Manage Asbestos [PDF 671KB] 
, and Worker Consultation and Involvement [PDF 263KB] may be relevant and useful when engaging with this sector, and also the Diversity & Delivery pages on the intranet.
21 For further information please contact Bob Hadway, Agriculture and Food Sector, Nottingham Tel. 0115 971 2849 (VPN 513 2849) robert.hadway@hse.gsi.gov.uk