Quick answer
The hierarchy of controls helps you consider measures that tackle a hazard before relying on individual behaviour or protective equipment. Start by asking whether the hazard can be removed or replaced, then consider engineering and work arrangements. PPE may still be needed for remaining risks, but it should not become the automatic first answer.
Control the cause as far as you can
A warning sign or a pair of gloves may be useful, but each can leave the source of harm in place. A stronger arrangement may prevent exposure or make the safe method easier to follow.
HSE’s hierarchy-of-controls guidance sets out elimination, substitution, engineering controls, administrative controls and PPE, with PPE as the last resort. It is a way to structure the decision, not a requirement to use every level for every task.
What does each level mean?
| Level | Question | Illustrative option |
|---|---|---|
| Elimination | Can the harmful activity or source be removed? | Redesign work so an unnecessary hazardous transfer is no longer needed. |
| Substitution | Can a less hazardous material or process do the job? | Assess a less hazardous cleaning option without introducing uncontrolled new risks. |
| Engineering controls | Can people be separated from the hazard by design? | Use suitable guarding, enclosure or physical separation for the activity. |
| Administrative controls | Can the way work is organised reduce exposure? | Agree access, task sequencing, instruction and supervision. |
| Personal protective equipment | What protection is needed for remaining exposure? | Select suitable equipment for the actual hazard, with correct use and maintenance. |
The examples are starting points. Suitability depends on the task, people and operating conditions; a control must be assessed rather than selected from a table by its name.
Worked example: a repeatedly wet access route
Hypothetical example. A workplace repeatedly places a warning sign beside water on a route. The sign alerts people, but the water keeps returning.
- Investigate the source. Can the leak or work process causing the water be removed?
- Review the layout. Can the activity and pedestrian access be arranged so people are not exposed?
- Organise temporary controls. Use a safe route, effective cleaning and communication while the source is addressed.
- Check remaining exposure. Decide whether further measures, including appropriate footwear, are needed.
The hierarchy changes the first question from “Which sign?” to “Why is the floor wet, and how can exposure be prevented?” Our kitchen-slip guide explores a practical food-workplace application.
Choose, implement and check the whole arrangement
HSE’s risk-management steps explains removing a hazard where possible and implementing practical controls. Check how a proposed change affects other work, including cleaning and maintenance.
- Will the control work during the busiest or least-supervised period?
- Can workers use it without an awkward workaround?
- Does a replacement introduce a different hazard?
- Who maintains the control and responds if it fails?
- How will its effectiveness be checked?
More than one measure may be needed. For Northern Ireland, use HSENI’s risk-assessment guidance for the local duty and approach rather than assuming every GB regulation applies unchanged.
Mistakes when applying the hierarchy
- Starting and ending with PPE. Examine options that prevent or reduce exposure first.
- Removing necessary protection too soon. PPE-last does not mean protection can be removed before remaining risks are controlled.
- Calling a new product safer without assessment. Compare the actual hazards and conditions of use.
- Relying on a rule nobody can follow. Check equipment, workload and supervision as well as instructions.
- Assuming installation is the end. Controls need to remain effective as work and conditions change.
Next steps
- Choose one recurring exposure or concern.
- Work through higher-order options before selecting lower-order measures.
- Check new risks, resources and worker understanding.
- Observe the task after implementation and revise weak controls.
Read HSE’s hierarchy guidance — Provides the official order of controls and its context for deciding whether PPE is needed.
Relevant next resource
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