LONE WORKING Introduction

Transcription

1 LONE WORKING Introduction Lone working could be defined as any situation where a worker is engaged in a solo activity out of others' sight and hearing range. Unfortunately, this definition is too broad to be of much use. It covers so many scenarios that ultimately almost everyone will be a lone worker at some point in their normal work activity. For instance, in every workplace there will always be somebody who is the first to arrive, and somebody who is the last to leave. Similarly, an individual may have to go to, e.g. a storeroom by him or herself. In all such circumstances, the individual is unarguably a lone worker in the strict definition of the term. Too much concentration on the concept of 'aloneness' may be unnecessarily limiting, as the above examples do not necessarily involve great risk, nor do they require elaborate management systems to control those risks. When considering this subject, it is important to distinguish between the chance occurrence of finding oneself on one's own, and work which is specifically intended to be carried out in isolation, and may last for some time. Even this description is open to interpretation. How far away must other people be, and what intervals must lapse between contacts, before special arrangements for lone working are required? What weight should be given to those who may be present, but who have no practical knowledge of the work activity or the ability to respond in an emergency? When drawing up effective policies and safe systems of work, it is how risks are perceived and classified that will define what is usefully to be called lone working. In assessing these risks, an employer must look to the activity itself, the environment in which it takes place and the risks that arise from working alone. Some examples of lone working defined by place are: working in a fixed establishment with no other persons on site, or when others may be elsewhere on site working in a remote location, including outdoors work on other employers' premises or working from home travelling in the course of work. Some examples of lone working defined by occupation include: construction site workers research workers and laboratory staff care workers / health visitors delivery / postal staff and drivers maintenance staff and service engineers sales consultants car park attendants estate agents. 1

2 Legal Requirements Employers are responsible for the health, safety and welfare at work of their employees and the health and safety of those affected by the work. These responsibilities cannot be transferred to workers who work alone or without close supervision. It is the employers' duty to organise and control solitary workers. Employees have responsibilities to take reasonable care of themselves and other people affected by their work and to co-operate with their employers in the discharge of their legal obligations. Working alone is not the subject of any general prohibition in health and safety law. Every day there are many examples of people working alone and an employer's responsibility remains the same as for any other category of worker. However, in determining the arrangements necessary to ensure a safe workplace, it is likely that solitary or remote workers have additional needs, which must be addressed. Nonetheless, the law has stipulated that, in some cases, there are specific circumstances in which at least two people must be involved in the work under consideration and that, for these activities, single manning is not a safe system of work. Specific legal requirements are laid down in the case of work where the hazards are considered too great for people to work unaccompanied. The second person is often required to act as a supervisor. Of course, the safe method of work identified by a routine risk assessment may indicate that similar standards of supervision should be adopted when it enhances the safety of the workforce, even if there is no statutory requirement. For example, under regulation 5 of the Diving Operations at Work Regulations 1981 there must be a supervisor appointed to take control of the exercise. Under regulation 13(1) of the Woodworking Machines Regulations 1974, where a young person is working on dangerous woodworking machinery, supervision is required until they have received full instruction and training in the dangers and precautions to be observed. More than one person should carry out certain fumigation work, and other work with substances hazardous to health. Except where an exemption has been issued, accompaniment is needed when unloading petrol at certain premises under the Carriage of Dangerous Goods by Road Regulations 1996, and for the supervision of vehicles carrying certain explosives (Carriage of Explosives by Road Regulations 1996). In certain operations that fall within the scope of the Construction (Health, Safety and Welfare) Regulations 1996, such as erecting scaffolding and using unsupported access equipment (regulation 6) and the demolition of certain structures (regulation 10), activities must be supervised. General duties Under s.2 of the Health and Safety at Work Act 1974 (HSW Act), employers have the responsibility to ensure, so far as is reasonably practicable, the health, safety and welfare at work of all their employees. Section 3 further extends this duty towards persons, other than employees, who might be affected by such work activities. Under s.7, employees have duties to take reasonable care for their own health and safety, and for that of anyone else that may be affected by their actions. 2

3 In the absence of any specific legislation or pre-defined standards, every situation will have to be considered on its merits through a process of risk assessment. Regulation 3 of the Management of Health and Safety at Work Regulations (MHSWR) requires employers and the self-employed to make an assessment of the risks involved in all activities undertaken, and to ensure that all relevant risks are properly controlled. Regulation 3 of the Health and Safety (First Aid) Regulations 1981 requires an employer to make appropriate provision for enabling first aid to be rendered to employees. Except in some special cases involving mines, quarries, offshore or diving operations, reportable accidents under the Reporting of Injuries, Diseases and Dangerous Occurrences Regulations 1995, that involve peripatetic workers, must be reported to the enforcement authority. The person's employer must make the report, regardless of where the accident causing the injury has taken place. The Workplace (Health, Safety and Welfare) Regulations place duties on employers to provide welfare facilities for their workers. This can be a problem when people are working off-site or in a remote location. If the workplace is on a construction site, then the requirements under the Construction (Health, Safety and Welfare) Regulations 1996 apply. Consideration must be given to providing sanitary conveniences and facilities for washing and for drinking water. In addition, outdoor work may require the provision of certain clothing and facilities for changing or drying them. However, a measure of common sense is required in interpreting what is reasonably practicable under the circumstances. Assessing the Risks Solitary workers should not be exposed to significantly more risks than employees who work together. Precautions should take account of normal working conditions and foreseeable emergency situations e.g. fire, chemical release, equipment failure, illness and accidents. Identify all the places where people work alone and ask:- Does the workplace present a special risk to the solitary worker? Is there safe access and exit for one person? Can all the plant, chemical and other substances and goods involved in the work be safely handled by one person? Does the work involve lifting objects too large for one person; more than one person may be necessary to operate essential controls for the safe running of equipment? Is there a risk of horseplay? Will cash be handled and will there be a risk of violence? The purpose of assessing the risks of working alone or unsupervised for significant periods of time is to establish two main facts: 1. Whether the work can be done safely by an unaccompanied person; 2. What arrangements will ensure than an individual is not exposed to greater risks than employees who work together. 3

4 The starting point of the assessment should be the recognition that a lone person is more vulnerable when the unexpected happens. Therefore, before anyone is asked to work by themselves, certain issues should be considered. Remoteness and isolation When employees are working in remote locations, the employer must consider whether: the emergency services can approach close enough (if necessary) there is a clear understanding about how long the work should take there is adequate access to first aid, or provision for mobile workers to carry a first aid kit transport arrangements to and from the workplace are adequate. Condition of the workplace A safe means of entry and exit to the workplace must be guaranteed. The employer must also ensure that there is adequate illumination and that the physical terrain and atmosphere is investigated. There should be some practical arrangements for meals and drinks to be taken and for appropriate welfare facilities to be available. Communication Employers should consider whether communication is adequate, and in particular: what level of supervision is intended and how is it to be carried out? has the lone worker been equipped with a system for maintaining contact, such as two-way means of communication, a pager or a personal alarm? is there a closed circuit television (CCTV) system on site, and will it be monitored? Personal Assault Workers who are thought to be carrying cash, or who can be seen in possession of valuables such as laptop computers, pharmaceuticals, hand tools, mobile phones, etc. may be at risk from robbery or attack. Women can face increased risks from violence when working alone, such as sexual harassment and assault, although men can also be victims of this type of violence. Persons with criminal intent may also pose a risk if they find out a worker's address. Emergency Procedures In case of emergency, consideration must be given to: whether sufficient preparation has been made to cope with the emergency, e.g. fire, illness or accident, and have appropriate procedures been established? what provisions are in place to make the workplace secure if it must be left unattended. Solitary workers should be capable of responding correctly in emergency situations. Emergency procedures should be established and workers trained to implement them. 4

5 Information about emergency procedures should be given to solitary contract workers who visit the premises. Solitary workers should have access to adequate first-aid facilities and mobile workers should carry a first-aid kit suitable for treating minor injuries. Suitable systems should be devised to monitor the condition of solitary workers, and include at least a check at the end of the working period. In addition it is desirable to consider: Procedures where supervisors contact, periodically visit and visually monitor people working alone. Procedures where regular contact between the solitary worker and supervision is maintained using either a telephone or radio. Automatic warning devices which operate if specific signals are not received periodically from the solitary worker, e.g. systems to include security staff. Other devices to raise the alarm in the event of an emergency operated manually or activated automatically by the absence of activity. Information and training Employers must ensure that sufficient information has been given to enable their workers to recognise the hazards and appreciate the risks of working alone. Where safe working procedures are laid down, the workers must follow these. The Department should establish clear procedures to see the limits to what can and cannot be done while working alone. They should specify how to behave in circumstances which are new, unusual or beyond the scope of training, e.g. when to stop work and seek advice from a supervisor. Supervision Although solitary workers cannot be subject to constant supervision, it is still the Department s duty to provide appropriate control of the work. Supervision complements information, instruction and training and helps to ensure that employees and students understand the risks associated with their work and that the necessary safety precautions are carried out. It can also provide guidance in situations of uncertainty. The extent of supervision required depends on the risks involved and the proficiency and experience of the employee or student to identify and handle safety issues. Employees or students new to the job, undergoing training, doing a job which presents special risks, or dealing with new situations may need to be accompanied at first. The extent of supervision required is a management decision. It should not be left to individuals to decide whether they require assistance. Safety supervision can generally be carried out when visits are made to check the progress and quality of the work and may take the form of periodic site visits coupled with discussions in which safety issues are assessed. Therefore given the relative lack of supervision, extra care must be taken to ensure that the lone worker is competent to both carry out the task and to deal with foreseeable problems. 5

6 Medical fitness Issues that must be discussed in relation to medical fitness include: do the circumstances of working alone place additional requirements on workers in terms of their physical or mental stamina? is there a medical condition that makes them unsuitable for working alone? would a pre-employment questionnaire or medical examination be helpful under the circumstances? Tools and equipment Where machinery or power tools are being used, consideration of the electrical safety, guarding and fire precautions required are paramount. The use of flammable, explosive or toxic chemicals must be fully assessed. The presence of automatic fire protection (flood) systems e.g. carbon dioxide gas may pose special risks. Access equipment that is suitable for handling by one person alone may be required, and all lifting operations should be safe. Consideration must be given to supplying appropriate personal protective equipment, bearing in mind the limited possibilities for supervision. Providing support Sometimes a second person may be able to contribute to the safety of an activity and corresponding guidance may recommend this. A second person may also contribute to the safety of the first person, thus the employer will need to determine whether accompaniment brings a definite benefit to the safety of the worker. Another example of a task where a second person could usefully contribute to the reduction of risk is in the case of reversing vehicles. A survey by the Health and Safety Executive shows that around 20% of fatal injuries involving vehicles occurred during unsupervised reversing manoeuvres. Permits to Work The permit to work system is a powerful tool in the planning and control of work activities. It ensures that all the elements of a safe system of work are in place before people are allowed to undertake hazardous activities. It is also a means of communication between management, supervisors, team leaders and those carrying out the hazardous work. Essential features of a permit-to-work are: a) clear identification of who may authorise particular jobs (and any limits to their authority) and who is responsible for specifying the necessary precautions (eg isolation, air testing, emergency arrangements etc); b) provision for ensuring that contractors engaged to carry out work are included; c) training and instruction in the issue of permits; d) monitoring and auditing to ensure that the system works as intended. Personal Alarm Systems There are a number of portable alarm systems available, of varying degrees of sophistication. Some can be bought off the shelf, while others can be made up to a 6

7 company's own specification. There are also alarm systems that are set up to monitor remote plant and equipment. These systems will be able to detect failure or malfunction that may put a lone worker at risk, and are often integrated with a complete security package including CCTV, fire detection etc. The system most suitable will depend on the circumstances it is to be used for, but there is one common basic feature to all systems. It must ensure that vulnerable individuals can raise an instant alarm, or be located precisely, so that immediate assistance can be sent. The basic kit might consist of a portable transmitter worn or clipped to clothing and a receiver located at some distance that can pick up an alarm call. Generally they work on a variety of radio frequencies and are battery powered. The range is variable and the battery life (usually rechargeable) is also variable. To this simple arrangement can be added a variety of options. Sectors that are frequently associated with using this technology include security / custodial guards, utilities personnel, doctors, social services visitors and service or maintenance engineers. Indeed, anyone with a mobile phone is part of a two-way communication system that is a potential lifesaver. Different alarm activation s are available, the alarm may simply be activated manually or the alarm call may be transmitted automatically. This can cover a number of scenarios. 1. 'No movement' sensors operate the alarm if no activity is detected for a pre-set time. In some cases a warning signal will sound on the transmitter in case the operative has fallen asleep or has removed the device, rather than become unconscious. 2. 'Out of range' detectors warn the user if the unit is moved outside the area covered by the system. 3. Central control desks can send signals to transceivers in the field at certain intervals - if there is no response, an alarm is activated at the control desk. Where the use of alarms is restricted to specific buildings or sites, location detection systems can be used. Transmitters are placed in key locations - stairwells, plant rooms, corridors, etc., to transmit address codes that are logged automatically into the portable units as they pass. In this way the movements of individuals can be registered and if an alarm is activated the last known location will automatically be sent with the alarm call. A similar device can be used for tracking vehicles. No alarm systems can prevent an accident or assault, although they might deter the latter, so alarms cannot be used as substitutes for careful planning or implementation of safe working practices. However, in the event of an emergency they may enable the user to summon aid and minimise the consequences of delay. Victim Support Incidents of violent assault, including murder, have occurred in the course of workers' everyday jobs. This matter has to be taken seriously as an occupational health and safety issue. Lone workers are often seen as prime targets. Even where no physical injury results people can suffer severe psychological stress, and this state may endure 7

8 long after the incident. The Suzy Lamplugh Trust state that the highest levels of attack and abuse are reported by care workers, retail staff and professional staff working outside the office. Employers are required to treat "an act of non-consensual physical violence done to a person at work" as a reportable accident under the Reporting of Injuries, Diseases and Dangerous Occurrences Regulations, if the injury criteria are met. The Health and Safety Executive (HSE) advises the "best way to tackle violence is for the employer and employees to work together to decide what to do". In some cases it will be obvious if there is a problem and what the problem is. In other circumstances there may be no history as yet. For people who work alone the risks not only include violence, but also risks arising from the psychological trauma. Employers must consider what measures are necessary to limit the effects of stressful situations by offering services such as posttrauma counselling. PTSD is a recognised psychiatric illness and, as such, may provide evidence to support a common law negligence claim. If an employer knows of a health and safety risk to the workforce or ought to know of such a hazard, and fails to take reasonable steps to avoid or protect against that risk, the employer could be liable for the resulting personal injury. The provision of post-trauma counselling must therefore be considered as a part of normal preventive measures when workers experience a personal assault or are involved in a violent incident. A suitable and sufficient assessment may also indicate the need for the appropriate training of managers in how to deal with the effects of trauma. Policy Statement The content of the statement will establish a company's intent to avoid the need for lone working where possible. Where workers do have to work alone, personal safety must be the prime consideration. As far as is practicable, regular communication with a responsible person is essential to this. Lone workers must be made aware of all the necessary steps to avoid putting themselves at risk, either from the work activity itself or as a consequence of the work environment. A safe work method must be drawn up and agreed to before an worker is allowed to work unaccompanied. It is vital that workers follow the procedures laid down to control the risks of lone working. Employers must, therefore, give all the necessary information, instruction, training and supervision to enable their lone workers to recognise the hazards and appreciate the risks involved. The risk assessment will identify these hazards and describe the measures required for minimising the risks. To underline the employer's commitment to developing safe methods of lone working, a statement outlining these details should be included in the health and safety policy. Adequate resources need to be allocated for the expenditure that may arise from an individual's requirements. 8

9 Consultation One aspect of the current socio-economic climate may be considered relevant to lone working. Computerisation and automation of services and production, coupled with staffing cuts, may create lone work activities where none had previously existed. Changes in the working arrangements that have health and safety implications must now be discussed with workers, either directly or with their elected representatives, and where applicable with trade union appointed safety representatives. Under MHSWR, employers must tell employees about the findings of the risk assessment and the preventive and protective measures being considered. Employers will need to consult workers about their intended actions - often workers are best qualified to develop pro-active measures, as they have detailed knowledge of the work and the likely problems that will be encountered. Conclusion Lone working is a catchall phrase that describes some quite distinct occupational arrangements. Yet, strict definitions of what constitutes lone working do not necessarily serve a useful purpose. It is important, therefore, to provide a suitable method of work, related to the task itself, and to provide a back-up system appropriate to the circumstances in which the task is undertaken. An employer should carry out an assessment of the risks of lone working which encompasses: remoteness or isolation, the environmental conditions, communications, vulnerability to criminal intent, emergency procedures, information and training, medical fitness and safe work equipment. The lone worker must have authority to suspend work when necessary and confidence in a full and effective support system in the event of emergencies. The organisation should include these principles in its safety policy. Produced by Safety Services Cardiff University. 9