Because contrasts are not contrasts in level, but in character of sound. In a room that's filled with the quiet hum of office machines and air conditioning, the sudden sharp tap of a pen on a desk is not necessary any louder than the other noise, but it is of such different nature that it gets picked out of the background.
welcome to the side effect of asking a question to design a game rule. Your whole concept is going to be challenged, because folks ARE taking more into consideration for their answer than just your base question.
That's not a bad thing, but as a designer, it is something you should expect to happen. Just roll with it. You'll hopefully get a better rule or get verification that your line of reasoning was sound.
Some of these question, probably the only way to get answers is to get a Db meter and try it out AFTER carefully reading how to take proper sound measurements. Sound volume decreases dramatically over distance. So when playing a gig with a band, and the house says sound can't be louder than 70 Db, you gotta ask "as measured from where?". Legally, sound ordinances tend to be "as measured from the side walk".
But then the ambient noise of the street may contaminate that reading, let alone if a car passes the officer taking the reading, right then.
And that's just discussing the difficulties of measuring Volume.
It's certainly not a bad concept to consider.
What is the volume of each activity, as measured in a quiet space.
What is the ambient volume of various places a party may find themselves in.
from there, the difference in levels MIGHT be a clue as to the probability of detection by a listener.
However, the nature of the sounds is also a factor as Umbran mentions. Carrying on a private conversation in a busy public place is possible because all the other people are making similar noises and NOT listening to anybody else. Whereas, talking in the woods, while an elven ranger waits along the trail, he's more likely to hear that as it approaches.
Walking in a dungeon wearing armor isn't horribly noisy, though somebody listening for an approaching intruder will hear it. Somebody who lives there and isn't on alert, may just think it's a different wandering monster, doing some wandering.