Mt Gower Walking Track
Risk Assessment
May 2013
Table of Contents
1.
Introduction ......................................................................................................................... 3
2.
Objectives ........................................................................................................................... 4
3.
Description of the Mt Gower Walking Track ......................................................................... 4
4.
Civil liability .......................................................................................................................... 8
5.
Risk management ............................................................................................................. 10
6.
Risk Treatment Plans ........................................................................................................ 12
Risk 1. Dangerous trees or falling limbs causing injury or death or damage to equipment . 12
Risk 2. Rock fall, cliff and slope instability causing injury or death or damage to equipment14
Risk 3. Slips, trips or falls due to unstable ground, exposed roots, creek crossing etc. ...... 16
Risk 4. Walkers becoming lost in a remote location ........................................................... 18
Risk 5. Failure of rope and anchor system......................................................................... 20
Risk 6. Failure of communications ..................................................................................... 23
Risk 7. Risk of injury or illness to walkers due to their skill, experience or health/fitness levels
.......................................................................................................................................... 25
Risk 8. Exposure of walkers to elements resulting in heat stroke, heat exhaustion,
dehydration or hypothermia ............................................................................................... 27
7.
Discussion ......................................................................................................................... 28
Capacity to respond to incidents ........................................................................................ 28
Commercial tour operator licensing ................................................................................... 30
Implementation .................................................................................................................. 32
Monitoring, evaluation, review and implementation ........................................................... 32
8.
References ........................................................................................................................ 33
Appendix A ........................................................................................................................ 34
Mt Gower Risk Assessment
2
1. INTRODUCTION
The Lord Howe Island Board (LHIB) has a legal duty to address the safety of people on Lord Howe
Island (the Island), and is required to take steps to ensure that risks are appropriately managed.
This requirement relates to LHIB’s role as a land manager and its obligations to visitors and to LHIB
staff and contractors.
The LHIB will aim to protect human life and provide for an injury-free visit to the Island. However,
the natural environment will always present risks to visitors—these risks can be managed, but never
eliminated.
Where risks are present the LHIB has a legal duty of care to take precautions against a risk of harm
in the following circumstances:

where the risk is foreseeable (that is, it is a risk that LHIB knew of or ought to have known of)

where the risk is not insignificant

where a reasonable person in LHIB’s position would have taken those precautions in the
same circumstances.
This ‘Mount Gower Walking Track Risk Assessment’ has been undertaken in accordance with the
‘LHIB Risk Management Policy’ (LHIB 2010b) and the ‘LHIB Risk Management Procedures’ (LHIB
2010c) to manage risks to people using the Mt Gower Walking Track. The risk management
framework referred to above overlaps with work health and safety (WHS) requirements. The main
law dealing with WHS in NSW is the Work Health and Safety Act 2011 (WHS Act). Under the WHS
Act, the LHIB has obligations to ensure the health, safety and welfare of persons other than
employees at a place of work. Other legislation, standards and policies relevant to this risk
assessment are listed in Appendix A.
Risk management involves a systematic process of:

identifying the risk

assessing the level of risk—dependent on the frequency of exposure, probability and
consequence

managing the risk—eliminate risk, reduce risk possibility, reduce risk impact, accept risk or
finance risk

monitoring and review.
The document has been prepared by LHIB staff in conjunction with emergency service
organisations (i.e. NSW Police, NSW Ambulance Service, and State Emergency Control Service),
licensed commercial Island tour operators and independent specialists.
Mt Gower Risk Assessment
3
2. OBJECTIVES
The objectives of the risk assessment are to:

identify risks associated with the use of the Mt Gower Walking Track

analyse these risks to determine the level of risk

where necessary, treat risks according to set policies and procedures.
3. DESCRIPTION OF THE MT GOWER WALKING
TRACK
Introduction
The Mt Gower Walking Track is located on the southern part of Lord Howe Island within the
Permanent Park Preserve (the Park). For the purposes of this risk assessment the walking track has
been divided into five sections as show on Figure 1.
The walking track commences at Little Island (at sea level) and climbs the steep foothills of Mt
Lidgbird before traversing the Lower Road, a narrow ledge on a western buttress of the mountain
where ropes are provided for assistance. The track then turns east into Erskine Valley and over a
small crossing of Erskine Creek. The track continues to the saddle between Mt Lidgbird and Mt
Gower to Getup Place, the final, steepest and most challenging section of the climb which requires
walkers to use ropes to attain the summit, 873 metres above sea level (Figure 1).
The track is approximately 3.3 kilometers in length (one-way). The return trip (starting at Little
Island) takes 8 to 10 hours on average, depending on the fitness of the group/individual. Distances
and average durations for each track section are shown in Table 1.
Table 1: Distances and duration for each section of the Mt Gower Walking Track
Figures shown are average times taken to complete the walk and may vary depending on the fitness of the group/individual.
Section Location
1
2
3
4
5
Total
Little Island to Lower Rd
Lower Rd to Erskine Valley
Erskine Valley to Gower Saddle
Gower Saddle to Getup Place
Getup Place to Gower Summit
Distance
(m)
1,050
875
860
300
470
3,555
Mt Gower Risk Assessment
Duration
(mins)
45
25
60
45
45
Approx. 4 hours each way
4
Construction standard
The Mt Gower Walking Track is classified as Class 5 (Marked Route) under Australian Standard AS
2156.1—2001 Walking tracks Part 1: Classification and signage (Standards Australia 2001a;
referred to here as AS 2156.1—2001).
The track is generally a natural surface, with minor modifications made in some areas for steps, foot
holds, ropes and anchors.
The track is maintained in accordance with AS 2156.1—2001 and Australian Standard 2156.2—
2001 Walking tracks Part 2: Infrastructure design (Standards Australia 2001b; referred to here as
AS 2156.2—2001). Priorities for maintenance are based on safety and environmental issues.
The Mt Gower Walking Track has been recommended for listing on the State Heritage Register by
MUSEcape as part of the Draft ‘LHI Community-based Heritage Study’ (MUSEcape 2012). The
listing is unlikely to affect routine maintenance or minor re-routing of the track for safety reasons.
Maintenance works will continue to be undertaken in accordance with the LHI ‘Permanent Park
Preserve Plan of Management 2010’. Should the track require re-routing, a review of environmental
factors will be undertaken to ensure all environmental considerations are assessed.
Access to Mt Gower
The earliest description of the Mt Gower track was written by botanist/surveyor, RD Fitzgerald, who
provided a firsthand account of his attempt to ascend Mt Gower in 1869. Guided tours to the summit
of Mt Gower commenced in 1958, following the original track (MUSEcape 2012).
The ‘LHI Permanent Park Preserve Plan of Management’ (LHIB 2010a) places restrictions on visitor
access to Mt Gower—all visitors to the Island must be accompanied by a licensed guide on walks to
the mountain. These restrictions are primarily due to the fact that licensed guides mitigate potential
risks and the Board and Island residents have limited capacity to carry out search and rescue
operations. As there are no helicopters permanently stationed on the Island, transporting injured
walkers from the remote areas of the Island can involve carrying them considerable distances over
rugged terrain (LHIB 2010).
In the 2009–10 financial year, the Board approved three commercial operators to conduct guided
walks to Mt Gower: Dean Hiscox (LHI Environmental Tours), Jack Shick (Sea to Summit
Expeditions), and Ian Hutton (LHI Nature Tours). These licences have now expired and licences for
each of the existing operators will be renewed subject to this risk assessment.
Permanent Island residents may access Mt Gower without a licensed guide at their own risk.
Unguided access to Mt Gower represents a considerable risk and is discussed below.
Mt Gower Risk Assessment
5
Figure 1: Mt Gower Walking Track
Mt Gower Risk Assessment
6
Estimated number of track users
The Mt Gower walk has been identified as one of the top 18 walks in Australia (Australian
Geographic 2010) and is a popular walk with visitors and Island residents.
In the past, tours were conducted twice a week during peak seasons. However, due to increased
demand in recent years group walking tours are now conducted 2–4 times a week (depending on
the weather) during the peak tourist season (December to May), generally on Mondays,
Wednesdays, Thursdays and Fridays. Private tours may be undertaken on other days, although
only about six such tours are undertaken each year. During the winter months, guided walks
generally occur once a week due to lower demand and poor weather, and because licensed guides
close their businesses over this period.
Under the current licence conditions, the guide-to-participant ratio is 1:15. A maximum of 20
participants are allowed on any walking tour, provided that two approved guides are used. The
walks are restricted to the existing designated system of walking tracks.
The Board has proposed the introduction of a new Commercial Tour Operator Licensing System
(Appendix B), which may place limits on the frequency and number of walkers on the track at any
given time.
The Mt Gower walk is also a popular walk for Island residents. Although there is no record of the
number of residents who climb Mt Gower, it is estimated that an average 10 people per month use
the walking track.
Recorded injuries and fatalities
Since 2001, four reported serious incidents requiring medical response have occurred on the Mt
Gower WalkingTrack:

a fatality due to cardiac arrest between Erskines Creek and the Saddle (September 2001)

a walker suffered a compound fracture to her lower leg after falling on a steep section of the
track below the Saddle (November 2008)

a walker broke their ribs below the Getup Place (September 2010)

a walker broke their left ankle just above the Getup Place (May 2011).
In October 2011, a walker required stitches after lacerating their arm near Little Island, but this
incident was not formally reported.
Mt Gower Risk Assessment
7
4. CIVIL LIABILITY
The general position under common law is that the LHIB owes a duty of care to take care of the
safety of those who enter on land that it manages.
Under the Civil Liability Act 2002 (CL Act), the LHIB is not negligent in failing to take precautions
against a risk of harm unless:
1. the risk was foreseeable (that is, it is a risk of which the LHIB knew or ought to have known)
2. the risk was not insignificant
3. in the circumstances, a reasonable person in the LHIB’s position would have taken
additional precautions to limit or remove the risk (s.5B).
When determining what precautions a reasonable person in LHIB’s position would take in the
circumstances, the CL Act provides guidance. Section 5B (2) provides that when determining
whether a reasonable person would have taken certain precautions, you should consider:
(a) the probability of the harm occurring
(b) the likely seriousness of the harm
(c) the burden of taking the precautions
(d) the social utility of the activity that creates the risk of harm.
THE LHIB DOES NOT OWE A DUTY FOR RECREATIONAL ACTIVITIES WHERE IT HAS
GIVEN WARNINGS ABOUT THE RISKS INVOLVED.
Recreational activities
Section 5M (1) of the CL Act provides that ‘a person does not owe a duty of care to another person
(the plaintiff) who engages in a recreational activity to take care in respect of a risk of the activity if
the risk was the subject of a risk warning’.
The term ‘recreational activity’ is defined broadly and is likely to include many activities in national
parks. Section 5K provides that 'recreational activity' includes:
‘(a) any sport (whether or not the sport is an organised activity), and
(b) any pursuit or activity engaged in for enjoyment, relaxation or leisure, and
(c) any pursuit or activity engaged in at a place (such as a beach, park or other public open
space) where people ordinarily engage in sport or in any pursuit or activity for enjoyment,
relaxation or leisure.’
Risk warnings
In order to receive the benefit of this protection from liability for injuries arising out of recreational
activities, the following must be observed:

Risk warnings must be given in a manner that is reasonably likely to result in people being
warned of the risk before engaging in the recreational activity. It is not necessary to show
that a particular person actually received or understood the risk warning (s.5M (3)).
Mt Gower Risk Assessment
8

Risk warnings may be given orally or in writing (s. 5M (4)). Clearly, risk warnings can be
given by way of warning signs. They may also be given in brochures, maps and entry
passes etc. (as long as the person is reasonably likely to be warned of the risk in this way).
Also, when LHIB staff are in the Park they can give oral warnings to anyone they observe on
the track or approaching the track. It is recommended that a record is made of any oral
warning given by staff as soon as possible after the warning was given. It is preferable to
restrict use of oral warnings to emergency situations only.

Risk warnings must be given by or on behalf of the LHIB (that is, LHIB cannot rely on risk
warnings given by other persons) (s. 5M (6)). It is recommended that the LHIB logo be
included on any signs or written materials handed out which warn of a risk.
Also note that the LHIB cannot rely on a risk warning for protection from liability for negligence if:

LHIB has failed to comply with any New South Wales or Commonwealth laws providing
specific practices or procedures for the protection of personal safety (s.5M (7))

a risk warning has been contradicted by an oral or written representation as to risk made by
or on behalf of the LHIB to the injured person (s. 5M (8)). For example, if the map at the
entry to a national park shows a track as closed because of danger, but a ranger
subsequently tells walkers it is safe to use, this would be a contradictory representation. In
particular, LHIB should not to provide written materials to the public which contradict current
risk warnings without simultaneously making the public aware of the new risk situation

the person who suffers harm is an 'incapable person' (i.e. a child or person suffering from a
physical or mental disability), except if they are under the control of or accompanied by a
capable adult who has been warned of the risk, or if a parent (whether accompanying the
child or not) has received the risk warning (s.5M (2)).
In addition, users of LHIB land may sometimes be children who are unaccompanied by an
adult, in which case warning signs may not always be sufficient to protect LHIB from liability.
Dangerous recreational activities
The CL Act states that a land manager will not be liable for harm resulting from an obvious risk of a
dangerous recreational activity (s. 5L). A ‘dangerous recreational activity’ is defined as a
recreational activity that involves a significant risk of physical harm (s. 5K). However, where a risk of
a dangerous recreational activity is not obvious (as understood above), LHIB may still be liable.
Waivers
Under s. 5N of the CL Act, contracts for the supply of recreational services can include a clause
which excludes, restricts or modifies liability for risks associated with recreational activities.
Commercial recreation and tour operators have a higher duty of care to their clients/participants
than an individual undertaking a similar activity. They also must respond to higher expectations from
their participants. Consequently, it is appropriate to have requirements in relation to safety,
competency and risk management that do not apply to individuals to the same degree that they
apply to commercial operators.
Mt Gower Risk Assessment
9
Work Health & Safety Act
Civil liability obligations often overlap with work health and safety (WHS) obligations. The main
statute dealing with WHS in New South Wales is the Work Health and Safety Act 2011 (WHS Act).
Under the WHS Act, the LHIB has obligations to:

ensure the health, safety and welfare of employees

ensure the health, safety and welfare of persons other than employees at a place of work
(e.g. members of the public who are on premises of LHIB).
5. RISK MANAGEMENT
This risk assessment has been undertaken in accordance with the LHIB ‘Risk Management Policy’
and ‘Risk Management Procedures’ (LHIB 2010b, c) to record and identify visitor safety risks that
are not yet adequately and reliably controlled.
Step 1: Establishing the context
In accordance with the LHIB Risk Management Procedures, for any risk rated extreme or high, the
management response will be documented in a Risk Treatment Plan (RTP), including certification of
its implementation. Where resources permit, a RTP may also be prepared for risks rated as medium
where such risks are not well controlled and/or require ongoing monitoring.
An RTP sets out actions selected to manage the risk, the resource requirements, the proposed
schedule for implementation, and who is responsible for its implementation.
LHIB accepts that not all risks can be controlled, and that resource constraints can limit our capacity
to control risks. However, LHIB will seek, over time, to minimise risks to the achievement of our
strategic, management and operational objectives. In doing this, our approach will be informed by
the following principles:

Priority will always be given to the protection of life and property, consistent as far as
possible with the protection of environmental values, both natural and cultural.

Risks will be treated in accordance with their rating, with risks rated as extreme being
addressed first, followed as resources permit by those rated high, then medium and lastly
low.

Action to reduce or control risks rated as extreme will commence as soon as management
becomes aware of the assessed risk level, while action to address risks rated as high will
commence as soon as practicable.

In managing risk, LHIB seeks to ensure that any reasonably foreseeable risk of the type
which could give rise to a claim for civil liability is actively assessed and managed.
This risk assessment follows these principles.
Mt Gower Risk Assessment
10
Step 2: Identifying the risks
The risk assessment has been prepared by LHIB staff in conjunction with emergency service
organisations (NSW Police, NSW Ambulance Service and the NSW State Emergency Control
Service), licensed commercial Island tour operators and independent specialists. The following risks
have been identified for the Mt Gower Walking Track:
1. dangerous trees/limbs falling
2. rock fall, cliff and slope instability
3. slips, trips or falls due to unstable ground, exposed roots, creek crossing etc.
4. walkers becoming lost in a remote location
5. failure of the rope and anchor system
6. failure of communications
7. risk of injury or illness to walkers due to their skill, experience and health/fitness levels
8. exposure of walkers to elements resulting in heat stroke, heat exhaustion, dehydration or
hypothermia.
Steps 3 & 4: Risk analysis and risk evaluation
The risk has been assessed in accordance with the LHIB ‘Risk Management Procedures’ and is
documented in Appendix C.
Step 5: Risk treatment
Risk treatment options for the various risks have been identified and documented in Section 6
below.
There are numerous ways to treat risks and in instances where risk relates to health and safety
there is a hierarchy of control, as follows:
1. eliminate the hazard
2. substitute the hazard with a lesser risk
3. isolate the hazard
4. use engineering controls
5. use administrative controls
6. use personal protective equipment.
The LHIB ‘Risk Management Procedures’ identify that:
‘in most cases a combination of treatment options is necessary to control a risk. The selection
of treatment options must take into account various factors such as feasibility, cost,
effectiveness and environmental impacts. The key factor, however, is that the treatment is
proportional to the risk.’
Mt Gower Risk Assessment
11
6. RISK TREATMENT PLANS
Risk 1. Dangerous trees or falling limbs causing injury
or death or damage to equipment
Description:
The risk of death from tree fall is considered to be low to medium. However, as a land manager, the
LHIB is required to take steps to manage tree risk. The risk of tree fall is increased immediately
following rain, or during strong winds. The first section of the track which ascends from Little Island
to the Lower Road through to Erskine Valley and up to the Saddle has the greatest risk from tree
falls and falling branches (Scaly Bark and Blue Plum). As walkers are not stationary, the likelihood
of injury is greatly reduced.
Fallen trees may present a hazard if blocking the track and causing visitors to negotiate a barrier at
a dangerous location.
There is also a risk of participants striking their head on low branches above Getup Place and eye
stick injuries.
Falling trees may also cause damage to infrastructure, for example ropes and anchor systems,
although this is considered to be a low risk.
Current controls:

Tree risk assessments are carried out every 12–18 months by the LHIB in accordance with
the Office of Environment and Heritage (OEH) Tree Risk Assessment Procedure as part of
routine walking track inspections.

Observations by licensed operators are undertaken during their regular guided walks.

Trees blocking the track are removed by tour guides or, if not feasible, notified to the Board
for removal.

Activities are cancelled in inclement weather.

Ad hoc briefings are conducted prior to walks when the location of dangerous trees may be
discussed.
Risk rating:
Consequence
rating
Likelihood
Current risk
level
Major
Rare
Medium
Mt Gower Risk Assessment
12
Recommended actions:

The LHIB will adopt a policy and procedure for the assessment and management of tree
risk.

Dangerous trees will be recorded in an asset maintenance system / cyclic maintenance plan
/ project plan. Removal of dangerous trees and branches is to be conducted as part of cyclic
maintenance of LHIB walking tracks.

Training of selected staff in tree maintenance and inspection should be considered as a cost
effective method of increasing resources available for tree risk management.

Arborists or other suitably qualified tree management contractors may be used to validate
the conclusions of staff if the tree risk appears to require a significant management
response.

Tree maintenance work involving climbing must be undertaken by suitably qualified and
experienced arborists in accordance with Australian Standard 4373—2007 (Standards
Australia 2007) and the Amenity Tree Industry Code of Practice (WorkCover Authority of
NSW 2012).

Guides to advise walkers of the risk of striking low branches (particularly for persons wearing
peaked caps) at pre-activity briefing and to notify LHIB staff of any potential risks.

Guides to include information on the potential risks that are associated with the Mt Gower
walk within their marketing material (i.e. brochures, signs and website/s).

Guides to submit regular risk assessment reports to the LHIB for action.
Residual risk evaluation on completion of Risk Treatment Plan:
Consequence
rating
Likelihood
Current risk
level
Major
Rare
Medium
Note: There is no net reduction in risk following completion of the recommendations and as
a result these actions are ranked as a low priority.
Mt Gower Risk Assessment
13
Risk 2. Rock fall, cliff and slope instability causing injury
or death or damage to equipment
Description:
The geology of Mt Gower is described by the Department of Mineral Resources (1985) as Mount
Lidgbird basalt and it consists of many individual lava flows, varying in thickness, with some up to 30
metres thick. Some layers display well developed columnar jointing. The physiography is described
by Etheridge (1889) as side slope and escarpment, where the dominant soil process is
transportational. On steep slopes, soils are usually shallow and run-off exceeds infiltration.
The track varies in slope from relatively undulating terrain (Lower Road), 25° to 50° (Little Island to
Lower Road and Erskine Creek to the Saddle), to the steep rock faces of Getup Place. The Lower
Road traverses a 250-metre high vertical and undercut cliff face with a sheer drop of approximately
80–100 metres from the walking track to sea level. Getup Place is a vertical, exposed 25-metre
section of track that requires the use of ropes to ascend the rock face.
Rock falls from above Lower Road and Getup Place have been observed by many residents and
guides, and evidence of rock falls can be seen in damaged tree trunks.
There have been a number of landslips affecting walking tracks on the Island. These generally
follow significant rainfall or storm events. There is evidence of previous landslides in the form of
scouring through the landscape downslope of the walking track. A minor landslip located in a
drainage line which has subsequently washed away has occurred on a section of the Lower Road.
While minor landslips over walking tracks are easily repaired, large-scale track stabilisation following
major landslips may be difficult to achieve without major engineering works.
Preliminary geotechnical advice from Coffey Geotechnics Pty Ltd in October 2010 suggests that the
overhang on the northern end of Lower Road is stable and unlikely to present a risk to walkers. The
vegetation on the scree slope below Lower Road indicates that the area is reasonably stable.
Further assessment of the southern end of Lower Road is required.
Current controls:
Rock fall:

Pre-activity briefing by guides to advise walkers of the risk of rock fall.

It is a condition of the guides’ insurers that helmets must be worn by all clients when moving
through the Lower Road section of the track. Helmets are provided for this beginning section
of the track to protect against head injuries from possible rock falls from the cliff face above.
Briefings cover the correct fitting of helmets and the need to minimise the length of time
spent along Lower Road.

LHIB ensures staff are not working immediately above Lower Road during scheduled walks,
and ensures guides are notified when staff are working in this area.

Signs have been installed at the start of Lower Road to inform people of the danger of rock
falls.
Mt Gower Risk Assessment
14
Risk rating:
Consequence
rating
Likelihood
Current risk
level
Moderate
Unlikely
Medium
Recommended actions:

Track to be closed during inclement weather. Inclement weather is considered to be when
50 mm of rain has fallen in the previous 24-hour period (as shown on the BOM website).
Track to remain closed for 24–48 hours subject to track condition. This procedure has been
developed in consultation with guides.

This condition will be included in future licensing agreements and guides will be briefed on
the LHIB procedures for track closures due to inclement weather and be prepared to
suspend or cancel an activity or evacuate a group.

Geotechnical engineer are to assess cliff stability and the longer term threats to the
undercutting of the cliffs that appear to be part of a longer term erosive trend.
[Reassessment to be undertaken every 5 years.]

Consider implementing a cyclic plan for geotechnical inspections at Lower Road and Getup
Place every 5 years.

Investigate alternate routes, in particular, alternatives to the Lower Road section which may
be made impassable by further landslips.
Residual risk evaluation on completion of Risk Treatment Plan:
Consequence
rating
Likelihood
Current risk
level
Moderate
Unlikely
Medium
Note: There is no net reduction in risk following completion of the recommendations and as
a result these actions are ranked as a low priority.
Mt Gower Risk Assessment
15
Risk 3. Slips, trips or falls due to unstable ground,
exposed roots, creek crossing etc.
Description:
Minor injuries (cuts, abrasions, sprains, strains, and/or broken bones) as a result of slipping or
tripping on rocks, exposed tree roots and/or unstable ground are common. A potential risk also
exists at Erskine Creek crossing and in wet areas along the track. The likelihood of tripping or
slipping is increased with fatigue and wet weather. This is particularly evident with the number of
injuries occurring on the rocks at Little Island on the return trip (C Haselden, pers. comm.). There is
an increased consequence rating if a fall occurs at Lower Road or Getup Place.
Unfortunately, despite licence conditions that require reporting of minor injuries, most injuries are
not being recorded.
Falls / working at height are discussed in more detail in Risk 5 (below).
Current controls:

All brochures relating to the Mt Gower Walking Track show that it is a Class 5 walk (Walking
Track Classification System)

Pre-activity briefings are required to advise walkers of unstable and slippery conditions.

Guides ensure suitable footwear is worn by walkers.

Where possible, the track immediately east of the intertidal zone is used rather than the
rocks at Little Island.

Lower Road is maintained at 1 metre wide, through regular spraying of kikuyu.
Risk rating:
Location
Consequence
rating
Likelihood
Current risk
level
Overall
Minor
Probable
Medium
Lower Road, Getup
Place
Major
Possible
High
Mt Gower Risk Assessment
16
Recommended actions:

Walking Track Classification System to be shown on track heads (i.e. gate at Little Island) to
inform residents (unguided users).

Guides to screen customers using a rigorous pre-walk health assessment (example shown
in Appendix D). Guides will maintain records on appropriate file.

Participants to retain responsibility for all medical conditions through medical indemnity
(example shown in Appendix E).

Guides to continue with pre-activity briefings to advise walkers of unstable and slippery
conditions

Children must be accompanied by a consenting adult.

Guides to report all trip/slip/fall accidents or near misses on a prescribed form, and
recommend remedial works to help prevent further accidents at the same location. These
requirements are to be included as condition of licence and LHIB to enforce licence
conditions.

All guides must know and comply with the LHIB procedures for track closures due to
inclement weather and be prepared to suspend or cancel an activity or evacuate a group.

Track to be closed during inclement weather. Inclement weather is considered to be when
50 mm of rain has fallen in the previous 24-hour period (as shown on the BOM website).
Track to remain closed for 24–48 hours subject to condition of track.

The LHIB will prepare a Walking Track Strategy which outlines requirements for periodic
maintenance of the walking track to address sites known to be a slip or trip hazard. Cyclic
maintenance requirements will be identified in the LHIB Asset Maintenance System and
remedial actions recorded.

Staff and contractors undertaking maintenance of the walking track are to have accreditation
in relevant working at heights training.
Residual risk evaluation on completion of Risk Treatment Plan:
Consequence
rating
Likelihood
Current risk
level
Minor
Probable
Medium
Mt Gower Risk Assessment
17
Risk 4. Walkers becoming lost in a remote location
Description:
The Mt Gower Walking Track is remote, and assistance in the event of an injury is difficult due to the
steep terrain and distance from vehicular access.
Walkers are at risk of becoming lost or disorientated due to failure of navigation processes including
separation from their group or guide, disorientation due to the lack of directional markers or poor
visibility (i.e. during adverse weather conditions or lack of daylight), or failure of navigation aids such
as GPS unit, compass and/or map.
There are two or three locations where the track is unclear and may cause confusion, particularly in
low light conditions. The risk of walkers losing their way at these locations generally relates to local,
unguided walkers.
Current controls:

All visitors to the Island must be accompanied by a licensed guide on walks to Mt Gower.

Existing guides are very experienced and have excellent navigation skills.

Guides clearly instruct walkers of the procedures to follow if they become separated from the
group.

Guides must possess a current Senior/Remote First Aid Certificate, VHF radio and carry a
first aid kit appropriate for the size of their group.

Under the existing licence conditions, all walks have a guide-to-participant ratio of 1:15. A
maximum of 20 participants is allowed provided two approved guides are used.

All walkers are advised to carry adequate food and water, a torch and warm clothing in case
of being stranded in the Park for an extended period of time, possibly overnight.
Risk rating:
Consequence
rating
Likelihood
Current risk
level
Minor
Possible
Low
Recommended actions:

LHIB to introduce new licensing system. Licensees are required to prepare a written manual
detailing all operational procedures relating to safety management, accident prevention, first
aid, incident management, emergency response, equipment, communication and contact
procedures, weather contingency, guide responsibilities, environmental protection and a Job
Safety Analysis (Appendix F).
Mt Gower Risk Assessment
18

Guides and instructors must be experienced and have relevant endorsed outdoor recreation
or tourism accreditation

The guide-to-participant ratio is to be reduced to 1:10 in line with OEH guidelines.

Emergency positioning indicating radio beacon (EPIRB) or personal locator beacon (PLB), 2way radio, topographic map and compass are to be carried by guides and at all times.

Unguided local walkers to advise their planned route and estimated time of return at the
LHIB Administration Office by completing a register prior to departure and carry an EPIRB,
first aid kit, 2-way radio, topographic map, compass and helmet.

Ensure adequate directional markers are in place, particularly along key sections of the track
where risk of disorientation is high. [Consideration has been given to the use of reflective
markers to allow navigation at night. However, it has been suggested that this may increase
the use of the track at night, and as such is not recommended.]

Installation of signage at the beginning of the walking track to reflect the abovementioned
items.

Strategically position first aid / basic survival items at Erskine Creek, The Saddle and Mt
Gower (contents of the kits shown in Appendix G). LHIB to seek joint funding from the State
Emergency Service (SES). Maintenance of caches will need to be included in cyclic
maintenance plan.

Retain research igloo at Mt Gower for emergency purposes.

Maintain 4WD access to Little Island Trail to assist in evacuation, subject to cost.

Identify predetermined evacuation locations (i.e. helicopter winch extraction points) and
maintain as required.
Residual risk evaluation on completion of Risk Treatment Plan:
Consequence
rating
Likelihood
Current risk
level
Minor
Unlikely
Low
Note: There is no net reduction in risk following completion of the recommendations and as
a result these actions are ranked as a low priority.
Mt Gower Risk Assessment
19
Risk 5. Failure of rope and anchor system
Description:
Working at height presents many risks. Falls from as little as 3 metres are often fatal. The
Occupational Health and Safety Regulation 2001 Clause 56 requires that risks associated with falls
from height be controlled and specifies particular control measures.
The Mt Gower Walking Track is classified as a Class 5 (Marked Route) under Australian Standard
2156.1—2001 (Standards Australia 2001a).
Under AS 2156.2—2001 (Standards Australia 2001b), when the effective fall height exceeds 3
metres a ‘Type E’ handhold (consisting of rope, chain wire or separate handholds) may be placed
on the opposite side of the fall hazard and the handhold need not be continuous. Along Lower Road
the risk is greatest at points or corners where the track is at its narrowest. If a slip occurs, walkers
are not ‘tied in’ and the consequence is major.
Current controls:
The Mt Gower Walking Track contains 26 rope sections. On 14 September 2011, an audit of each
rope section was undertaken by the LHIB (Appendix H).
Anchors
The anchors have been manufactured by two different metal fabricators using 316 stainless steel
and consisting of an eye bolt approximately 30 mm internal diameter, shaft approximately 90 mm in
length and 9 mm diam. The shaft of the bolt is then scored with a grinder and installed into the
adjacent rock using a general purpose epoxy adhesive (Epirez – Episet Structural 8242), by LHIB
staff (Appendix I). There are no records of anchors failing.
The anchors are generally placed perpendicular to the rock surface and are loaded ‘in tension’ with
the risk of being pulled out. The anchors are used for balance on uneven and steep surfaces and
the load is distributed across several bolts. The anchors are not intended to take full body loads.
The anchors do not have a load rating or warranty.
Preliminary geotechnical advice has indicated that the bolts on the lower road section are fixed to
weathered rock and further work is required to determine whether this is structurally sound (Coffey
Geotechnics Pty Ltd pers. comm.).
Under the LHIB cyclic maintenance program, inspections and maintenance of all bolts and ropes
are carried out every 12 months by LHIB staff. Licensed guides are required to report potential
problems with the condition of the track, bolts or rope to the LHIB within 24 hours following the
completion of a walk.
Mt Gower Risk Assessment
20
Ropes
A number of different types of natural and synthetic ropes have been used on the Mt Gower walk to
provide assistance and security to people when moving through these difficult sections.
Manilla and polyethylene (silver) rope is progressively being replaced with 24 mm (3-strand)
polypropylene (green) rope. The technical specifications of this rope are shown in Appendix J. Both
the silver and green ropes are UV-stabilized, resistant to abrasion and have a breaking force of 36.6
KN and 83.7 KN respectively.
The ends of the rope are spliced by trained LHIB staff, and are fixed generally to trees or other
suitable anchor points by a clove hitch, bowline or splice. Some ropes are not secured on the
downhill side allowing users to select a suitable route for climbing. This also presents a risk if more
than one user is on a section at any one time. Guides brief walkers on the proper accent and decent
techniques and often assist with harder sections of the track where the rope sections are located.
The LHIB undertakes visual inspections (as part of its cyclic maintenance program) together with
care and maintenance in accordance with the manufacturer’s guidelines (Appendix G). A
photographic record is maintained electronically by the LHIB.
Due to the topography and design of the anchor system, an effective handhold is not continuous
along Lower Road.
Risk rating:
Consequence
rating
Likelihood
Current risk
level
Major
Possible
High
Recommended actions:

The design of the anchor system needs to be reviewed. Investigate an effective continuous
hand hold across the Lower Road where possible. Consideration has been given to various
harness and belay systems.

All anchors should be tested (e.g. Hilti Model No. 03448215) and where necessary be
replaced with industrial, load-rated eye bolts, loaded in sheer.

An engineer should determine the depth of embedment, and the choice of adhesive or
chemset based on the composition of the rock.

Installation of anchors is to be carried out by trained LHIB staff.
Mt Gower Risk Assessment
21

Implement recommendations of the Rope Audit completed in September 2011:

Subject to review by independent specialist, replace all other ropes with 24 mm nylon
(polyamide) rope, as required.

Subject to review by independent specialist, replace spliced 24 mm rope lanyards on
the Lower Road section of the track with stainless steel wire traces that have stainless
steel hard eyes at either end.

LHIB to continue with its existing cyclic monitoring (including visual inspection, hand pull-out
test and photographic record) of all ropes and anchors at 12-month intervals (in September
each year prior to peak visitor season) and replace ropes as required and implemented
through an Asset Maintenance System.

Inspections are to include assessing trees which are used as anchor points.

Consideration needs to be given to fixing the down-slope end of loose rope installations in
certain places and any recommendation to change the system should be reviewed and
assessed by the licensed guides.

Guides to brief walkers regarding the use of ropes and number of people permitted on ropes
at any one time.

All LHIB staff undertaking work at height using ropes or installing bolts must be trained in
industrial rope access skills specific to the task and worksite. This training must meet the
competencies established by the Industrial Rope Access Association of Australia.

LHIB to consider jack hammering small sections of the rock to make the walking track wider
along the Lower Road, subject to risk and cost.

LHIB to install foot holds or stainless plate steps, at the base of Getup Place.
Residual risk evaluation on completion of Risk Treatment Plan:
Consequence
rating
Likelihood
Current risk
level
Major
Unlikely
Medium
Mt Gower Risk Assessment
22
Risk 6. Failure of communications
Description:
Safety and risk messages
Communication is an important tool in visitor safety and risk management. Section 5H of the Civil
Liability Act 2002 provides that there is no duty to warn of obvious risks (or those that are common
knowledge). However, the LHIB is required to take other precautions to minimise obvious risks if it
would be reasonable to do so in the circumstances.
The LHIB will include safety messages on the Board website, in publications and through other
promotional media such as brochures. These safety messages should identify a range of general
risks that may be encountered on the Island, and will help visitors understand their personal
responsibility and guide them on how to stay safe.
Walkers must be informed and accept responsibility for the risks associated with particular walks.
The track classification system should be used as a guide to inform and justify decisions about
appropriate risk management for walks, rather than trying to eliminate risks altogether.
Incident communication systems
Adequate and reliable communication is an essential component during all emergencies. There is
no mobile phone coverage on the Island.
Existing communication is based on the VHF / Marine Band radio system (#12), consisting of a
repeater station at Transit Hill, base radio at the LHIB office / NSW Police, several vehicle-mounted
radios, and hand-held radios assigned to guides, LHIB staff, and emergency organisations.
The LHIB has replaced the existing radio system with a UHF high band (digital) radio system.
The current radio communication system is not performing adequately. The geographical shape of
the Island creates black spots or signal shadows in certain areas of the Island. Black spots have
been identified from the southern end of the Lower Road to the Getup Place. These black spots are
likely to remain until a repeater has been installed at North Head or Blackburn Island. In the interim,
a radio relay positioned on the Lower Road is required.
A common problem during incidents is radio traffic. UHF radios may also be used for chat, and
these channels are not secure and can be used by any member of the public.
For all search and rescue operations, an Incident Management Team (IMT) is established and
based at the Control Centre at the LHIB Office. A base radio is situated in the Environment Unit
office.
Current controls:

Communications equipment (VHF/UHF) is carried at all times. Guides and residents ensure
that the units are operational with fully charged batteries (including spare battery).

Regular IMT meetings are held during an incident.
Mt Gower Risk Assessment
23

Debriefs are conducted within 7 days following an incident.
Risk rating:
Consequence
rating
Likelihood
Current risk
level
Major
Possible
High
Recommended actions:

LHIB and guides to undertake black spot mapping for UHF radio system upgrade. LHIB to
determine adequacy of radio system.

Guides will be required to submit communication plans/procedures including call-back
arrangements as part of their licence conditions.

Consideration will need to be given to requiring guides to carry a back-up satellite phone
(subject to their benefit and effectiveness).

A communications plan will be prepared for all multi-agency incidents. This will be developed
as part of a standard operating procedure.

During incidents, the Incident Controller is to appoint a dedicated radio operator to log all
communications and pass on to relevant IMT personnel.

Crew Leaders and higher positions will be required to maintain a notebook to record
communications.

The SES to investigate radio operator training for interested members.

The LHIB will include safety messages on the Board website, in publications and through
other promotional media such as brochures.

Walking Track Classification System to be shown on track heads (i.e. gate at Little Island) to
inform residents (unguided users).
Residual risk evaluation on completion of Risk Treatment Plan:
Consequence
rating
Likelihood
Current risk
level
Major
Unlikely
Medium
Mt Gower Risk Assessment
24
Risk 7. Risk of injury or illness to walkers due to their
skill, experience or health/fitness levels
Description:
The Mt Gower Walking Track takes on average 8–10 hours to complete and requires a high level of
fitness and endurance. The walk involves regular steep inclines placing considerable stress on
individuals. One fatality occurred in 2001, between Erskines Creek and the Saddle, due to cardiac
arrest.
Walkers encounter natural hazards such as steep slopes, uneven surfaces and minor water
crossings. With a guide, it is not a necessity for users to have experience in bushwalking or other
specialised skills such as navigation.
Current controls:

General information provided by guides and the Board (including brochures, websites etc.)
showing the nature of the walk (considered ‘obvious’ risk).

Suggestions are made to interested persons to attempt the Goat House Walking Track.
Risks are similar (i.e. both walks have steep inclines, uneven surfaces, ropes etc.), although
the Goat House walk is unguided and is approximately 4 hours in duration.

Guides manage fatigue and take rest breaks when required.
Risk rating:
Consequence
rating
Likelihood
Current risk
level
Moderate
Possible
Medium
Recommended actions:

Pre-activity briefing by guides to advise walkers of the duration and fitness level
requirements.

Guides to screen customers through rigorous pre-walk health assessment (example shown
in Appendix D).

Participants retain responsibility for all medical conditions through medical indemnity
(example shown in Appendix E).

Children must be accompanied by a consenting adult.
Mt Gower Risk Assessment
25
Residual risk evaluation on completion of Risk Treatment Plan:
Consequence
rating
Likelihood
Current risk
level
Minor
Unlikely
Low
Mt Gower Risk Assessment
26
Risk 8. Exposure of walkers to elements resulting in heat
stroke, heat exhaustion, dehydration or hypothermia
Description:
Walkers of the track will be exposed to the elements (sun, wind, rain and temperature) which, if not
managed, may lead to injury or illness. The walk commences at 7 am in the cooler part of day and
finishes around 5 pm in the evening. Approximately half of walk is under the tree canopy.
Current controls:

Guides are required to monitor the weather forecast and any predicted extreme weather
conditions.

All guides must know and comply with the LHIB procedures for managing inclement weather
risks and be prepared to suspend or cancel an activity or evacuate a group.

Tracks are closed during inclement weather. Inclement weather is considered to be when 50
mm of rain has fallen in the previous 24-hour period (as shown on the BOM website). Track
to remain closed for 24–48 hours subject to track condition.

All walkers are advised to carry appropriate footwear and clothing for expected as well as
unexpected (but reasonably possible) weather events, such as storms. Walkers are advised
of the relationship between temperature and altitude (i.e. that it is about 6° cooler on the
summit).

All walkers are advised to carry adequate food and water supply, a hat for sun protection
and 30+ UV rated sunscreen.

All guides are required to have current Senior/Remote First Aid qualifications and carry a
first aid kit appropriate for the size of their group. Guides are familiar with the location of
strategically located caches.

Guides monitor fluid intake of individuals within their group and stop for regular rest breaks.
Risk rating:
Consequence
rating
Likelihood
Current risk
level
Minor
Unlikely
Low
Recommended actions:

No other actions proposed.
Mt Gower Risk Assessment
27
Residual risk evaluation on completion of Risk Treatment Plan:
Consequence
rating
Likelihood
Current risk
level
Minor
Unlikely
Low
7. DISCUSSION
Capacity to respond to incidents
Description:
Incident Management
The Incident Management System (IMS) is used for all incidents on the Island. An Incident
Controller (IC) has overall responsibility for command and control of the incident, and usually
establishes an Incident Management Team to undertake planning, operations and logistics.
NSW Police have statutory responsibility for all search and rescue operations. The LHIB, the State
Emergency Service (SES), Rural Fire Service (RFS) and other volunteers provide assistance to
search and rescue operations as required.
Rescues are managed on a case-by-case basis, and rely on the experience and local knowledge of
individuals.
Resources
A medical team is deployed as part of the first response to assess the health of the patient and
provide advice on suitable responses. Hospital and LHIB staff are generally used for this purpose.
Since 22 August 2011, the Lord Howe Island SES has effectively been off-line for rescue. The SES
will officially seek deregistration of the unit for General Land Rescue from the State Rescue Board.
Oxley region headquarters will continue to provide support to the volunteers to maintain an
acceptable capability to suit community needs. A memorandum of understanding is currently being
established between SES Oxley, the Board and the remaining SES/RFS members on the Island to
maintain a basic unit.
Both the SES and RFS have a limited number of active members who are trained in rescue
techniques. The LHIB provides assistance if insufficient personnel are able to be sourced.
Mt Gower Risk Assessment
28
Vertical Rescue (VR) accreditation on the Island has recently been withdrawn by the SES due to
the limited number of available volunteers on Lord Howe and the long-term sustainability of VR
capability. Should an incident occur, the SES have advised that accredited volunteers from the
mainland can be mobilised within 24 hours and flown to the Island by chartered aircraft to assist
with retrieving an injured person. Concerns have been raised by LHI residents that mainland
volunteers are not familiar with the terrain and this may create a safety issue.
As there are no helicopters permanently stationed on the Island, transporting injured walkers from
the remote areas of the Island can involve carrying them considerable distances over rugged
terrain. Based on experience from previous incidents, this may involve 20–30 personnel over an 8–
12 hour continuous period.
Due to the difficulty in moving an injured person down Getup Place, helicopter extraction is
preferred above this section of track. Subject to the timing of an incident, a team may be required
to stay overnight if the patient is stable.
It should be noted that helicopter extraction is subject to weather conditions, with the possibility of
cloud cover preventing helicopter extraction.
A suggestion concerning cost recovery has been put forward recommending that tour operators
hold an insurance policy for the fixed cost of a prequalified/equipped civilian helicopter operator to
retrieve severely injured persons from above Getup Place to the Island airport (Appendix K). This
scenario is feasible although in conflict with state emergency management arrangements.
However, considering the unique nature of issues on the Island, this scenario merits further
consideration.
Facilities
The Gower Wilson Memorial Hospital is a three-bed hospital which caters for the range of health
care needs of both the Island’s residents and tourists. The facility is currently used for acute
medical/surgical admissions. Complex cases are transferred to the mainland for ongoing or
specialist care.
Due to a lack of suitable terrain lighting, the Royal Flying Doctor Service (NSW Air Ambulance) do
not fly into Lord Howe Island at night. This means that a response will not be made for incidents
occurring after 3 pm. A proposal is currently being put forward to install terrain lighting on Transit Hill
and Intermediate Hill to provide for night-time flights.
The Royal Australian Air Force may provide medical evacuation services in extreme circumstances,
generally using Hercules aircraft based at RAAF Richmond, but this cannot be relied upon. Air
Ambulance Service costs are in the order of $12,000 each visit.
Equipment
A research igloo located on Mt Gower about 100 metres south of the track is available for
emergency overnight refuge, if required.
Suitably qualified (and physically fit) medical staff are required for first response to search and
rescue incidents, and in some cases an anaesthetist may be required. Equipment and prescription
medicines are required which are appropriate for the injury being treated. Information from medical
staff has indicated that this should be a requirement for relieving staff and that a full review be
undertaken of medical supplies.
Mt Gower Risk Assessment
29
Recommended actions:

Police and SES to coordinate Incident Management Systems training and Search and
Rescue training for relevant personnel.

Develop standard operating procedures in order to ensure appropriate preparedness, and
effective and timely response to incidents.

Limit the number of tour operators accessing Mt Gower in order to manage risk and visitor
experience.

LHIB to adopt an advisory / registration system for Island residents (unguided walkers) who
wish to climb the mountain.

Assess the health and fitness of incident personnel prior to deployment. [NB: while the IC is
ultimately responsible for the safety of all incident personnel, all staff are responsible for their
own safety and must advise their supervisors when they assess themselves or their
colleagues to be unfit for their assigned duties. This may be due to lack of competence,
insufficient physical fitness, lack of confidence, mental or physical fatigue, injury, drug or
alcohol effects or lack of rest.]

South Eastern Sydney Local Health District service to review skills, equipment and
prescription drugs required to ensure injured persons are able to be cared for overnight on
the Island prior to evacuation.

Strategically position first aid / basic survival items at Erskine Creek, The Saddle and Mt
Gower summit (contents of the kits shown in Appendix G). LHIB to seek joint funding from
SES. Maintenance of caches will need to be included in cyclic maintenance plan.

The State Emergency Management Committee assists with seeking opportunities to contract
prequalified civilian service providers such as Westpac Rescue, CareFlight.

Local tour operators consider taking insurance cover to fund helicopter patient extractions off
the mountain.
Commercial tour operator licensing
Description:
The licensing of these guides is currently due for renewal. The current licence conditions for Mt
Gower guides are basic and are by no means comprehensive. These conditions are:

All guides must hold a current Senior First Aid Certificate, or above, from a WorkCoverapproved provider.

All guides must carry a comprehensive first aid kit equivalent to a WorkCover Kit B.

All guides must carry a 2-way radio that can be monitored by the Board.

All guides must have public liability insurance to $10 million.

All trips will be limited to 10 participants plus one guide, with a maximum of 20 participants
plus two guides, unless special application is made to alter this condition.

No permanent ropes or other fixtures (such as rock bolts) are to be installed, attached or
removed anywhere within the Park.

The operator and their guides are to exercise due diligence and best safety management
practices to ensure the wellbeing and safety of their clients.
Mt Gower Risk Assessment
30

The operator is to notify the Board in writing of any incident arising directly out of guided
walks which results in or may result in loss or damage or injury to whomever or whatsoever
caused.
Recommended actions:
Licensing
The LHIB has proposed the introduction of a new licensing system (based on Parks EcoPass) for
commercial tour operators operating in the LHI Permanent Park Preserve.
The LHIB will address risk by ensuring that:

licensed operators hold public liability insurance to the minimum value of $10 million

all operators develop and maintain an Emergency Response Plan for each tour that outlines
procedures to be followed in the event of natural or other disaster, injury, illness or delay (a
template of the plan is included in Appendix A – Schedule 15)

a condition of all licenses is an agreement to comply with the Work Health and Safety Act
2011 and an undertaking to conduct all activities in a safe and reliable manner

Guides and instructors must be experienced and have relevant endorsed outdoor recreation
or tourism accreditation. Risk management is included in any accreditation programs used
by licensed operators

licensed operators are considered within a corporate risk management strategy in relation to
risk assessment, management, monitoring and financing.
Insurance: To obtain a licence to conduct commercial recreation and/or tour activities, operators
must effect and maintain a public liability insurance policy with an (APRA-approved (Australian
Prudential Regulation Authority) insurance company for a minimum of $10 million. The policy must
be in the name of the business entity or individual and the following must be identified as interested
parties: the Minister for the Environment, Department of Premier and Cabinet and the Crown
in right of NSW. The insurance policy must contain a description of the activities being undertaken
by the applicant and a geographical description of the location(s) of the activity.
Certain groups, such as children or foreign tourists, may require different protection measures.
In addition to the general conditions, the licensee must also comply with any activity- and sitespecific conditions relevant to the activities carried out under the licence. Activity conditions dictate
safe practices and minimum standards for organisations conducting outdoor recreation activities,
such as group size and client-to-guide ratios.
Claims
The LHIB should enter into discussions with the NSW Treasury Managed Fund as to claims for
search and rescue incidents.
Where the LHIB assists with a search and rescue operation that requires significant resources,
recovery of costs expended by LHIB may be sought from the rescued party in exceptional
circumstances, particularly where the NSW Police may seek cost recovery and/or regards the
actions of the rescued party as reckless or negligent.
Mt Gower Risk Assessment
31
Implementation
Risk is inherent in all outdoor activities. It is not possible (and from a visitor experience perspective
not desirable) to eliminate all risk and the LHIB and guides need to accept that some risk remains
and they should ensure that it is managed according to recognised methods.
Many of the proposed actions can be managed through:

introduction of a new commercial tour operator licensing system which includes:
o
restrictions on participation
o
pre-activity planning and briefings

regular audits and maintenance of equipment and infrastructure as part of Asset
Management System

training.
Despite actions to mitigate against risk, a residual risk of high or extreme risk remains. The LHIB will
need to identify risk treatment priorities and determine whether there is sufficient funding to
undertake any or all of these measures.
Monitoring, evaluation, review and implementation
This risk assessment is not a fixed document and should be reviewed every 3 years in the light of
changing knowledge or practices. New equipment or technology, changing understanding of the
environment, reports of incidents or near misses in Australia or overseas are possible triggers for a
review of the document.
Individual Risk Treatment Plans make provision for monitoring and review of these plans.
Monitoring track conditions also requires attention to address issues such as erosion, drainage
problems, unsafe or damaged infrastructure.
Risk assessment prepared by the LHIB:
Signed CEO
Date:
Mt Gower Risk Assessment
32
8. REFERENCES
Etheridge, R. 1889. The Physical and Geological Structure of Lord Howe Island. Mem. Aust. Mus.,
2: 100-126.
Standards Australia 2001, Walking tracks Part 1: Classification and signage, Australian Standard
2156.1—2001, Standards Australia International Ltd, Sydney.
Standards Australia (2001) Walking tracks: Infrastructure design, Australian Standard 2156.2—
2001, Standards Australia International Ltd, Sydney.
MUSEcape 2012, ‘The Last Paradise: A community-based heritage study of Lord Howe Island’.
LHIB—see Lord Howe Island Board
Lord Howe Island Board 2010a, ‘Lord Howe Island Permanent Park Preserve Plan of Management’,
LHIB, Lord Howe Island.
Lord Howe Island Board 2010b, ‘Lord Howe Island Risk Management Policy’, LHIB, Lord Howe
Island.
Lord Howe Island Board 2010c, ‘Lord Howe Island Risk Management Procedures’, LHIB, Lord
Howe Island.
WorkCover Authority of NSW 2012, Amenity Tree Industry Code of Practice.
Australian Geographic Outdoor Magazine 2010, 18 Best day walks in Australia, available at:
<http://www.australiangeographic.com.au/outdoor/18-best-day-walks-in-australia.htm>.
Mt Gower Risk Assessment
33
Appendix A
Relevant legislation, standards and policies
Relevant legislation:
Civil Liability Act 2002
Work Health and Safety Act 2011
Relevant standards:
Australian/New Zealand Risk Management Standard AS4360:2004
Australian Standard AS 2156.1—2001 Walking tracks Part 1: Classification and signage
Australian Standard AS 2156.2—2001 Walking tracks: Infrastructure design
Relevant Lord Howe Island Board documents:
Risk Management Policy, 2010
Risk Management Procedures, 2010
Local Disaster Plan (DISPLAN), 2007
Permanent Park Preserve Plan of Management, 2010
Relevant NSW Office of Environment and Heritage documents:
Remote and Isolated Work Policy
Tree Risk Management Policy and Procedures
Visitor Safety Policy and Procedures
Working at Heights Policy
Mt Gower Risk Assessment
34
List of other appendices
Appendix B: Standard Parks EcoPass licence agreement
Appendix C: Extract from LHIB Risk Management Policy and Procedures
Appendix D: Pre-walk health and fitness assessment (example)
Appendix E: Medical indemnity form (example)
Appendix F: Operations Plan (example)
Appendix G: First Aid / Rescue Kit Contents
Appendix H: Mt Gower Rope Audit (2011)
Appendix I: Photos showing anchors currently in use
Appendix J: Technical specifications and manufacturers guidelines for ropes
Appendix K: Summary of rescue helicopter options
Mt Gower Risk Assessment
35