Control of major risks on civil
construction sites
2011/12
Workplace Health and Safety Queensland
Campaign final report
October 2012
Workplace Health and Safety Queensland
1.
October 2012
Table of contents
1.
2.
3.
4.
5.
Table of contents .......................................................................................................................2
Executive summary ...................................................................................................................3
Background................................................................................................................................4
Acronyms ...................................................................................................................................4
Assessments overview .............................................................................................................5
5.1.
Assessments completed .....................................................................................................5
5.2.
Total assessments by area of focus....................................................................................5
5.3.
Total assessments by construction activity .........................................................................6
6. Results........................................................................................................................................7
6.1.
Preparation of SWMS/TMP .................................................................................................7
6.2.
Implementation of controls ..................................................................................................7
6.2.1.
Implementation of controls for specific construction activities.....................................7
6.3.
Communication methods ....................................................................................................7
6.4.
Monitoring methods.............................................................................................................7
6.5.
Worker involvement ............................................................................................................8
6.6.
Worker perspectives ...........................................................................................................9
6.7.
Traffic control workers.......................................................................................................10
6.8.
Construction housekeeping...............................................................................................10
7. Enforcement notices ...............................................................................................................11
8. Discussion................................................................................................................................11
8.1.
Workers and management disagree .................................................................................11
8.2.
Engage workers and communicate clearly .......................................................................11
8.3.
Risk to young and inexperienced workers ........................................................................11
Final report – Control of major risks on civil construction sites
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Workplace Health and Safety Queensland
2.
October 2012
Executive summary
The campaign delivered 590 assessments over a nine month period with inspectors visiting 362
businesses, approximately 10-15% of the civil construction industry. Major risks on civil construction
sites were targeted, including:
 the interaction of workers with mobile plant
 traffic management, and
 construction housekeeping as a contributor to slip, trip and fall injuries.
The different categories of civil construction work were assessed evenly (e.g. residential, nonresidential/commercial, roads and bridges, utilities and services), but with a greater focus on worker
interaction with mobile plant over traffic management. Excavation, road/building platform
construction, and infrastructure installation were the most commonly assessed construction
activities.
The campaign findings highlight the importance of meaningful engagement of workers in the safety
management process, including in the development and communication of safety documentation. It
is also evident that safety documentation must be simple and useful, both with respect to how it
relates to the activity and how it can be communicated to workers.
The key findings from the campaign can be summarised as follows:
 Most of the safe work method statements (SWMS) and traffic management plans (TMP) were
assessed by inspectors as being adequate for the task (92% adequately identified and
evaluated risks, 91% identified suitable controls)
 25% of activities were assessed as failing to implement the controls that had been
identified in the SWMS or TMP. This figure is only slightly lower (22%) when looking at
major contractors only.
 Different methods of communicating the contents of safety documentation (e.g. daily pre-start,
1:1 instruction) did not have a significant impact on compliance with the documentation.
 Periodic monitoring of an activity resulted in a significant reduction in compliance with SWMS or
TMP when compared to other methods of monitoring (e.g. constant monitoring, team supervisor
monitoring)
 Nearly a third of the SWMSs/TMPs assessed had been developed with no worker involvement,
with the remaining two-thirds involving some discussion. Documentation developed in
discussion with workers resulted in higher levels of compliance (approximately 10% difference)
 Workers reported that only three-quarters of SWMS/TMP were suitable for the task, only a third
(31%) were easy to understand and only a fifth were enforced/checked by management (21%)
 Workers aged 25 years and younger demonstrated a lower level of understanding of the
SWMS/TMP compared to their older colleagues, and
 Very high levels of compliance were reported with regard to the provision of amenities and the
management of fatigue for traffic controllers.
Final report – Control of major risks on civil construction sites
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Workplace Health and Safety Queensland
3.
October 2012
Background
The state-wide enforcement campaign, Control of major risks on civil construction sites,
commenced on 1 October 2011 and ended on 30 June 2012. The campaign targeted:



the interaction of workers with mobile plant
traffic management, in particular the management of fatigue and the provision of amenities
for traffic controllers, and
construction housekeeping practices.
The campaign had two main objectives:
1. To enforce compliance with the relevant standards, and
2. To gather information about how risks are managed on civil construction sites and, in
particular, on the safe work method statement (SWMS) process.
The assessment tool was designed to focus on a single high risk construction activity within the
target areas. For example, assessments were carried out on individual excavations and on the
specific traffic control arrangements for work on or near a public road.
Using the SWMS and traffic management plan (TMP) processes as a foundation, the assessment
aimed to gather information on whether each stage of the process was being completed effectively
and, ultimately, whether or not the process was effectively managing risk.
4.
Acronyms
The following acronyms are used throughout this report.
Acronym Meaning
BN&SC
Brisbane North and Sunshine Coast Region
BS&GC
Brisbane South and Gold Coast Region
CQ&WB
Central Queensland and Wide Bay Region
MUTCD
Manual of Uniform Traffic Control Devices
N/A
Not applicable
NQ
North Queensland Region
SW
South West Region
SWMS
Safe work method statement
TMP
Traffic management plan
WHSQ
Workplace Health and Safety Queensland
Final report – Control of major risks on civil construction sites
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Workplace Health and Safety Queensland
5.
Assessments overview
5.1.
Assessments completed
October 2012
A total of 590 assessments were completed over a period of nine months with inspectors visiting
362 businesses, approximately 10-15% of the civil construction industry1. The majority of
assessments were carried out in South East Queensland (438). The number of assessments
completed in the SW (60), CQ (72) and NQ (20) regions was indicative of the presence of suitable
construction projects over the campaign period.
Civil construction work on roads and bridges was the most commonly assessed category, with
approximately twice as many assessments as any other category. The other three categories (nonresidential/commercial, residential, and services and utilities) had similar levels of assessments.
Figure 1 - Total assessments by type of civil construction work
300
250
200
150
100
50
0
Nonresidential/commercial
5.2.
Residential
Roads and bridges
Services and utilities
Total assessments by area of focus
Nearly three-quarters of all assessments targeted worker interaction with mobile plant. Traffic
management, as it relates to work on or near a public road, may not be required for every civil
construction site.
Figure 2 - Total assessments by area of focus
Traffic management
163
Worker interaction
with mobile plant
427
1
Australian Bureau of Statistics, Businesses by Industry Class by Main State by Employment Size Ranges,
2010-11 (dated 24 April 2012)
Final report – Control of major risks on civil construction sites
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Workplace Health and Safety Queensland
5.3.
October 2012
Total assessments by construction activity
The three most commonly assessed activities to date, representing 73% of all assessments, are in
order:
 Excavating, shifting materials (tip trucks, bobcats), 254 assessments
 Road/building platform construction (grading, bitumen), 106 assessments, and
 Infrastructure installation (drainage, pipeline, cable), 66 assessments.
Figure 3 - Total assessments by construction activity
300
250
200
150
100
50
MP - Tunnel
operations
MP - Boom
lifts/elevated work
platforms
TM Public/worker
safety system
TM - Traffic
control
operations
TM - Traffic
controller
requirements
TM - Works being
carried out
adjacent to a road
TM - Competent
persons check
MP - Excavating,
shifting materials
(tip trucks,
MP Road/building
platform
MP - Clearing (top
soil, foilage)
MP - Concrete
placement
(cement trucks,
MP Drilling/horizontal
boring
MP Infrastructure
installation
MP - Piling
operations
0
Figure 4 - Total assessments for each construction activity by category of work
TM - Traffic controller requirements (amenity, fatigue)
MP - Drilling/horizontal boring
MP - Tunnel operations
MP - Piling operations
MP - Concrete placement (cement trucks, pumps)
TM - Public/worker safety system installation
Services and utilities
Roads and bridges
Residential
Non-residential/commercial
MP - Boom lifts/elevated work platforms
MP - Clearing (top soil, foilage)
TM - Works being carried out adjacent to a road
TM - Traffic control operations
MP - Infrastructure installation (drainage,
pipeline,cable)
MP - Road/building platform construction (grading,
bitumen)
MP - Excavating, shifting materials (tip trucks,
bobcats)
0
10
20
30
Final report – Control of major risks on civil construction sites
40
50
60
70
80
90
100
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Workplace Health and Safety Queensland
6.
Results
6.1.
Preparation of SWMS/TMP
October 2012
A significant majority of duty holders prepared the necessary documentation, a SWMS or TMP
(96%), adequately identified risks (92%), and identified suitable controls (91%).
According to the data, the activities most likely to be assessed as failing to identify suitable controls
include:
o the installation of public/worker safety systems for traffic management
o concrete placement
o the use of mobile plant in tunnel operations, and
o excavating, shifting materials (tip trucks, bobcats).
6.2.
Implementation of controls
76% of activities were assessed as having implemented the controls identified in the SWMS/TMP.
17% of activities were explicitly identified as failing to implement controls that had been identified in
the SWMS/TMP. The remaining 7% were recorded as N/A, accounting for documentation that was
absent or not fit for purpose (i.e. risks not adequately identified, suitable controls not identified).
Compliance among major contractors and large subcontractors was only slightly higher (78%)
indicating that the issue is not limited to smaller contractors and sites.
This data indicates that a significant number of high risk construction work activities are being
performed without regard to the SWMS or TMP.
6.2.1. Implementation of controls for specific construction activities
Activities that had a higher than average rate of failing to implement controls include:
o for mobile plant activities:
o infrastructure installation (drainage, pipeline, cable) (66 assessments)
o clearing (top soil, foliage) (26 assessments)
o concrete placement (cement trucks, pumps) (12 assessments), and
o for traffic management activities:
o traffic management works being carried out adjacent to a road (28 assessments),
and
o the installation of public/worker safety systems for traffic management (14
assessments).
A few of the activities assessed reported high rates of non-compliance, including drilling/horizontal
boring, piling operations, and tunnel operations. However, the small number of assessments
completed for these categories limits the extent to which the results can be generalised.
6.3.
Communication methods
Site and safety managers reported that the most common method of communicating the contents of
SWMS and TMP to workers were site specific induction or daily pre-start meetings, with just over
two-thirds of activities assessed (412) using this method. The next most common methods were
group or team consultation (254), followed by one-to-one instruction and training (194).
There was minimal variation in the level of compliance with documentation across the three most
common methods of communication. Posting the SWMS/TMP on a notice board, however, was
slightly less effective.
6.4.
Monitoring methods
Most activities assessed were subject to either constant monitoring (297) or periodic monitoring
(250) by a supervisor or manager. Monitoring by a team leader (110) or by the individual worker
(91) were also common.
Final report – Control of major risks on civil construction sites
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Workplace Health and Safety Queensland
October 2012
Constant monitoring by a supervisor was the most effective method of ensuring compliance with the
SWMS/TMP (i.e. controls were implemented). Monitoring by the team leader or the individual
worker also both resulted in high levels of compliance.
Periodic monitoring did not appear to be effective, with nearly a quarter of activities using this
method being assessed as failing to implement controls.
Figure 5 - Impact of monitoring method on the implementation of controls
100%
90%
80%
70%
60%
N/A
NO
50%
YES
40%
30%
20%
10%
0%
Constant activity
monitoring by
supervisor
6.5.
Periodic monitoring by
supervisor
Team leader
Individual worker
Not at all
Worker involvement
Two-thirds of activities that were assessed had included workers in some form of discussion as part
of the development of the SWMS or TMP. Only a very small number of SWMS/TMPs were actually
developed by workers themselves. In almost a third of the assessments workers were recorded as
having no involvement at all in the development of safety documentation.
Figure 6 - Worker involvement in the development of the SWMS or TMP
Developed by
workers
5%
Not at all
31%
Detailed
discussion
57%
Final report – Control of major risks on civil construction sites
Some discussion
7%
Page 8 of 12
Workplace Health and Safety Queensland
October 2012
Documentation that was developed by workers resulted in higher levels of compliance, although the
small number of documents reported for this category reduces the significance of this result.
Processes that involved either detailed discussion or some discussion performed reasonably, while
those with no worker involvement were the least effective.
Figure 7 - Impact of worker involvement on the implementation of controls
100%
80%
60%
N/A
NO
YES
40%
20%
0%
Not at all
6.6.
Detailed discussion
Some discussion
Developed by workers
Worker perspectives
The assessment gathered information on worker understanding of the contents of documentation as
well as their perception on its suitability, ease of understanding, and the extent to which it was
monitored.
Most workers were able to demonstrate an understanding of the contents of the SWMS/TMP as
they related to the construction activity (83%), however less than three-quarters (72%) believed the
documentation was suitable for the activity.
Less than a third of assessments recorded that workers thought the SWMS or TMP was easy to
understand (31%). Only 21% reported that the documentation was enforced by management.
Workers aged 25 years and younger demonstrated a lower level of understanding of the
SWMS/TMP compared to their older colleagues. This is an interesting result when compared to
workers’ compensation data in Queensland, which shows that younger workers that have lower
levels of training and experience also have a higher injury claim rate. 2.
2
Construction industry report, 2011 – Completed by the Information and Evaluation Unit, WHSQ
Final report – Control of major risks on civil construction sites
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Workplace Health and Safety Queensland
October 2012
Figure 8 - Worker understanding of SWMS/TMP by age group
100%
80%
60%
BLANK
NO
YES
40%
20%
0%
<18
6.7.
19 to 25
26 to 35
36 to 45
46 to 55
56+
Traffic control workers
In 2009, the Queensland Workplace Rights Ombudsman carried out an investigation into the
contract traffic control industry. The investigation identified shortcomings in the provision of basic
amenities and fatigue breaks for traffic controllers, among other things. In response to the
investigation the Attorney-General and Minister for Industrial Relations established an industry
taskforce, with representation from industry and government, to address the Ombudsman’s
recommendations. The taskforce published a report in July 2010 summarising the activities that had
been carried out3.
To assess the extent of any change in the industry since the Ombudsman’s investigation,
inspectors were asked to identify activities where traffic controllers were present or involved and to
review the provision of amenities and the management of fatigue for traffic control workers. The
results were:


97% were assessed as having suitable amenities, and
95% were assessed as effectively managing fatigue through the provision of mandatory rest
breaks.
6.8.
Construction housekeeping
Construction housekeeping was not identified as a significant issue on civil construction sites:




3
97% of assessments demonstrated safe means of access were provided for steep areas or
excavations
98% of assessments demonstrated that the site was using storage areas for materials, supplies,
and waste
93% of assessments demonstrated that a process was in place to review housekeeping
practices, and
97% of assessments demonstrated that the worker was provided with instructions on how to
comply with housekeeping rules.
http://www.deir.qld.gov.au/workplace/resources/pdfs/traffic-control-taskforce-report.pdf
Final report – Control of major risks on civil construction sites
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Workplace Health and Safety Queensland
October 2012
However, only 83% of activities reported that access ways were free from obstacles and well
maintained, indicating that more could be done to manage the hazards in this area.
7.
Enforcement notices
A total of 90 enforcement notices were issued as part of the campaign, including:
 58 improvement notices, or almost 1 notice for every 10 assessments
 1 infringement notice, and
 31 prohibition notices, or 1 notice for every 19 assessments.
Fifteen notices were issued for matters relating to safe work method statements (12 improvement
notices, 1 infringement notice, 2 prohibition notices), including failures to present SWMS when
requested and failures to prepare or monitor SWMSs. Many non-compliances relating to
documentation do not result in enforcement notices being issued as they can be addressed by duty
holders while an inspector is on site.
Uncontrolled risks relating to public and worker access, sometimes arising from poor construction
housekeeping, was the subject of 8 notices (2 prohibition notices, 6 improvement notices). Stability
was also identified as a common reason for enforcement action in relation to excavation work, with
6 notices issued (4 prohibition notices, 2 improvement notices).
8.
Discussion
The campaign assessment required inspectors to gather information from each level of the safety
management system. Documentation was evaluated, site and safety managers were asked to
report on their expectations, and workers were asked for their perception of how the system was
implemented and monitored. A comparison of the data collected from each of these sources assists
in identifying common failures as well as providing guidance for future campaigns.
8.1.
Workers and management disagree
Workers reported that monitoring was generally not taking place, that documentation was usually
not easy to understand, and in a quarter of cases not suitable for the activity.
Site and safety managers, on the other hand, reported comprehensive discussion with workers on
the development and communication of SWMS and TMP as well as relatively high levels of
monitoring.
Irrespective of which perception is more accurate, inspectors assessed the result as non-compliant
in approximately a quarter of cases.
8.2.
Engage workers and communicate clearly
The campaign data shows that constant activity monitoring by a supervisor is required in order to
ensure high levels of compliance with the SWMS or TMP. However, constant monitoring is not
always possible or practical. To achieve similar levels of compliance under periodic monitoring
workers must be engaged in the safety monitoring process, through either the development of
documentation or through meaningful consultation. Nearly a third of the documentation was
completed with no involvement from workers, highlighting a significant opportunity for improvement.
Increased worker involvement would likely impact on the other concerning areas of worker
perception, suitability for the task and ease of understanding.
8.3.
Risk to young and inexperienced workers
The results from the campaign are also a reminder that safety documentation must be useful, both
with respect to how it relates to the activity and how it can be communicated to workers. For a
quarter of the activities assessed the workers reported that the SWMS or TMP was not suitable for
the task. In addition, even though most workers (92%) were able to demonstrate to the inspector an
understanding of the risks and controls relevant to the activity being assessed, only a third of the
documentation was reported as easy to understand. This suggests that worker’s are relying on their
Final report – Control of major risks on civil construction sites
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Workplace Health and Safety Queensland
October 2012
experience to asses the hazards and risks associated with an activity and the controls that are
required rather than the documentation. As well as putting younger and less experienced workers at
greater risk, it makes the effectiveness of risk management activities dependent on the workers’
knowledge and experience, which may omit important information specific to the environment or
activity (e.g. the condition or capacity of specific items of plant, the location of services).
Final report – Control of major risks on civil construction sites
Page 12 of 12