July 2015 Final Draft

Transcription

1 July 2015 Final Draft

2 This Alpine Hiking (AH) Activity Safety Guideline project is managed by the Tourism Industry Association New Zealand (TIA) with support from WorkSafe NZ. The guideline development was facilitated by TIA and technical content was informed by AH experts. More information about the guideline development process can be found at The AH Activity Safety Guideline is a web-based document that will be reviewed and updated from time to time. The current version is available at Users should periodically check the date and version number of the current online document to ensure that their printed copies are up-to-date. Activity Safety Guidelines are the result of a recommendation from the final report of the 2009/10 government review of risk management and safety in the adventure and outdoor commercial sector in New Zealand. The wide variety of activities provided by these sectors is referred to broadly as adventure activities and includes activities provided by adventure tourism operators and outdoor education centres. TIA, WorkSafe NZ and the New Zealand commercial alpine community have made every effort to ensure that the information in this guideline is reliable. We make no guarantee of its accuracy or completeness and do not accept any liability for errors. We may change, add to, delete from, or otherwise amend the contents of this publication at any time without notice. Development facilitated by the Tourism Industry Association New Zealand PO Box 1697 Wellington 6140 Website: With the support of WorkSafe NZ PO Box 165 Wellington 6140 Website: ISBN (Online) Published: Final Draft for Public Consultation 31 July 2015 Cover photo: Stewart Barclay Alpine Hiking Activity Safety Guideline Public Consultation 31 July 2015 Page 1

3 Acknowledgements Other publications This guidance contains adventure tourism and outdoor commercial sector information published on the SupportAdventure website This guidance contains public sector information published by the Ministry of Business, Innovation and Employment, which is subject to Crown copyright (2010). Consultation The guideline was developed in consultation with the Alpine Hiking (AH) commercial guiding and instructing sector and other relevant experts. The following people comprised the AH activity safety guideline working group and are acknowledged for their support and advice on technical content: Stewart Barclay Marius Bron Ben Corcoran Martin Hess Charlie Hobbs The following groups are also acknowledged for their input and support for this particular guideline or for the overall Activity Safety Guideline project: Members of the AH Activity Safety Guideline support group; New Zealand Mountain Guides Association; New Zealand Mountain Safety Council; New Zealand Outdoor Instructors Association; Outdoors New Zealand; Outdoor Safety Auditors; ServiceIQ Industry Training Organisation; Surf Life Saving New Zealand, Tourism Industry Association New Zealand; Water Safety New Zealand. Alpine Hiking Activity Safety Guideline Public Consultation 31 July 2015 Page 2

4 Table of Contents Acknowledgements... 2 Table of Contents... 3 Definitions 4 Section 1 Introduction, purpose, scope and application A description of New Zealand Alpine Hiking Activities Scope and application: what this guideline covers and how to use it The legislative context for AH in New Zealand The purpose of this guideline and the SupportAdventure website Using this guideline to build safety into your SOPs Use this guideline to help you pass independent safety audits... 9 Section 2 The Hazard Management Process Identifying and assessing hazards Managing hazards Dynamic hazard management Managing the hazard of drugs and alcohol Using competent persons Incident reporting and learning Section 3 The Hazards Most Likely to Contribute to Serious Harm Section 4 The Environment Remoteness Terrain Weather The hazards from other users The risk of allergic reactions Protecting the environment Section 5 Alpine Hiking Activities Walking Site management instructional sessions and campsites River crossings Being transported by helicopter Section 6 Alpine Hiking Trip, Site and Activity Management Guide knowledge of the trip, site and systems Trip monitoring Communication systems Section 7 Staff Identifying safety responsibilities and competence requirements Verifying competence AH guide competence recommendations Ongoing staff training Identifying and dealing with unsafe staff Recommendations for using assistants to help manage safety Section 8 Participants Ensuring participants are suited to the activity Informing participants about safety Supervising participants Section 9 Equipment General use equipment Emergency equipment Equipment maintenance, testing and inspection Section 10 Emergencies Accessing suitable external emergency support Contingencies for limited access to emergency support Section 11 Safety System Reviews Appendix 1 Explanation of Terms What are all practicable steps? What are hazards and significant hazards? What is serious harm? Alpine Hiking Activity Safety Guideline Public Consultation 31 July 2015 Page 3

5 Definitions This guideline assumes the reader has technical knowledge of this activity; it defines only those terms that may be unique to this guideline, are used in a specific way or that would otherwise be open to interpretation. For the purposes of this document the following definitions apply: Alpine Professional (AP) A term for all guides, instructors, assistants, trainees, coaches, and leaders in an alpine environment who have assumed a formal duty of care for activity participants, irrespective of if they are paid or volunteering. Avalanche Terrain Alpine terrain that, in the presence of an unstable snowpack, has the potential to be either an avalanche start zone, in the path of an avalanche, or the run out area of an avalanche. This can be part of a controlled and managed environment such as a snow sports area or uncontrolled backcountry. Competent person (at a specific task) A person who can correctly perform the task. They have usually acquired the knowledge and skills to do this through a combination of training, qualification and experience. Direct supervision Is when the person supervising is in a position to be able to physically intervene and proactively manage anticipated hazards. Edge The place over which a person could fall if they are not attached to a safety system. Good practice The range of actions currently accepted within the adventure and outdoor sector to manage the risk of harm to staff, participants and visitors. Guide A person who is responsible for guiding participants. Health and safety explanation of terms See Appendix 1 for an explanation of the terms all practicable steps, serious harm, hazard and significant hazard. Incident An occurence that could have caused or caused harm to any person. Indirect supervision Is when the person supervising is able to communicate with the person being supervised, but may not be able to physically intervene to manage hazards should they develop. There are two types of indirect supervision proactive and reactive: Proactive indirect supervision is where the supervising staff member is actively monitoring the participant and is in a position to provide verbal assistance to intervene and manage hazards should they develop Reactive indirect supervision is where the supervising staff member is in a position to communicate verbally and provide assistance to a participant when sought, but may not be actively monitoring the participant or provide pre-emptive assistance. Nontechnical Terrain Alpine and sub-alpine terrain where it is possible to travel by walking. This is terrain in which an AP would not intend to use a rope other than as a hand line for confidence purposes. This excludes Alpine Hiking Activity Safety Guideline Public Consultation 31 July 2015 Page 4

6 terrain that, due to its steep nature and/or the consequence of a slip or fall, may require the use of a rope and appropriate anchors for multiple pitches to maintain an acceptable level of risk. Also excluded is rock climbing, ice climbing, mixed climbing, roped glacier travel and mountaineering. Operator Person or other legal entity (whether an employer, principal or self-employed person) who provides an adventure activity to a participant. Participant A person who takes an active role in an adventure activity but is not in a leadership or supervisory role. Qualified A person who holds a current nationally recognised qualification. Risk Effect of uncertainty on objectives. Risk assessment A process undertaken by a competent person to identify risks, and to assess them according to their significance. Safety critical task A task which if performed incorrectly or not performed at all will likely lead to an incident. Safety management plan (SMP) The written plan outlining the systems an operator will use to manage safety. Safety management system (SMS) The overarching management system for directing and controlling an operation in regard to safety. Sector New Zealand adventure tourism and outdoor education providers, support organisations and associations. A specific part of the sector may be referenced, for example the heli-skiing sector. Situational Awareness The ability of the AP to identify, monitor and make decisions on a range of factors throughout a trip or activity. Staff Employees, contractors or volunteers who work for an operator as instructors or guides and are responsible for the safety of participants undertaking high wire or swing activities. Standard operating procedures (SOPs) Written information outlining how an operator plans to conduct a particular activity or task. Technical expert A person who has professional credentials such as a high level nationally recognised qualification, or extensive knowledge, skills and experience to assist an operator with various technical tasks, including advising and reviewing the policies, procedures and practices of an activity. Alpine Hiking Activity Safety Guideline Public Consultation 31 July 2015 Page 5

7 Section 1 Introduction, purpose, scope and application This is an Activity Safety Guideline for Alpine Hiking. It is made up of two main parts. In the first part you will find: a description of the New Zealand AH sector an introduction to the legislative context for AH activities in New Zealand an explanation of the purpose of this guideline and how it relates to the laws around health and safety an explanation of the scope and application of this guideline: what it covers, and how to use it to build your standard operational procedures and pass safety audits an outline of industry good practice for establishing your hazard management process. The second part includes sections 2 through 10 which provide AH specific safety recommendations, and section 11 that gives recommendations about reviewing your safety systems. 1.1 A description of New Zealand Alpine Hiking Activities AH Activities occur predominately in tourism operations, commercial providers of outdoor education programmes and the training of recreational users. Operations vary widely in terms of the terrain, the style of trip, the length of trip and activities offered. The majority of AH operators are providing guided or instructed activities in a range of alpine and sub-alpine environments. Activities include alpine and sub-alpine walking, trekking, instructional sessions, snow shoeing, snow shelters and camping. This sector excludes technical mountaineering, ice climbing, rock climbing, mixed climbing, roped glacier travel, ski touring and heli-skiing. The AH sector is connected with the New Zealand Mountain Guides Association (NZMGA), New Zealand Outdoor Instructors Association (NZOIA) and the Mountain Safety Council (MSC). The NZMGA, the Mountain Safety Council, and other organisations developed the New Zealand Avalanche Safety Information Exchange (Info-Ex) a system modelled on a Canadian avalanche information exchange network. This service provides avalanche information for both professional and recreational backcountry users. 1.2 Scope and application: what this guideline covers and how to use it The guideline describes what AH operators and technical experts consider is good practice for actively managing safety in providing commercial AH in New Zealand. This guideline includes all nontechnical alpine activities* that take place in alpine and sub-alpine environments. Snow cover can be permanent or seasonal. * alpine and sub-alpine walking, trekking, instructional sessions, snow shoeing, snow shelters and camping. This sector excludes technical mountaineering, ice climbing, rock climbing, mixed climbing, roped glacier travel, Alpine Hiking Activity Safety Guideline Public Consultation 31 July 2015 Page 6

8 ski touring and heli-skiing. Some AH may also include technical activities (such as abseils and via ferrata style rope work) that are outside the scope of this guideline for information on good practice for these activities see the relevant activity safety guidelines on Activities associated with taking clients to and from alpine areas, such as driving, are outside the scope of this guideline. Operators who provide these activities need to manage the associated hazards. This guideline is written for commercial AH operators (primary audience) and also for safety auditors (secondary audience) as a benchmark for current good practice. It will also be useful for: activities that involve similar hazards, risks and techniques such as taking groups to remote back country areas or remote multiday low altitude treks. those providing non-commercial activities such as schools and clubs. This guideline focuses on preventing death or other serious harm. It identifies common significant hazards that clients and staff may be exposed to during AH trips. It makes recommendations for managing these hazards. Safety Management Systems are made of a safety management plan underpinned and driven by a positive safety culture. For information on building a safety management system go to The legislative context for AH in New Zealand Commercial AH operations, as are all workplaces, are subject to health and safety legislation. Health and safety legislation that applies to commercial AH operations is: the Health and Safety in Employment Act 1992 this guideline refers to this as the Act Health and safety legislation that might apply to commercial AH operations is: the Health and Safety in Employment (Adventure Activities) Regulations 2011 this guideline refers to this as the Adventure Activities Regulations. The health and safety legislation uses both operators and providers to refer to people or organisations who provide activities such as AH. This guideline uses operators throughout. Alpine Hiking Activity Safety Guideline Public Consultation 31 July 2015 Page 7

9 The Adventure Activities Regulations AH may expose the participant to risks as defined in the Adventure Activities Regulations. The Adventure Activities Regulations cover activities where: the recreational or educational experience the participants have is the main purpose; and the participants are guided, taught or otherwise assisted to participate in the activities; and the design of the activities deliberately exposes the participants to a risk of serious harm that must be managed by the operator of the activity; and the failure of the operator's management systems (such as failure of operational procedures or failure to provide reliable equipment) is likely to result in serious harm to participants, or participants are deliberately exposed to dangerous terrain or dangerous waters. The regulations require operations providing these activities to be registered and undergo an external safety audit. For more information go to the SupportAdventure website: Local council permits and land use concessions or permissions Commercial AH operations may require land use concessions or permissions from landowners. Operators should ensure that the correct permits, concessions and permissions are in place and that they abide by their conditions. 1.4 The purpose of this guideline and the SupportAdventure website This AH Activity Safety Guideline (referred to as the guideline ) aims to provide practical guidance for commercial AH operators in New Zealand to actively manage the safety of the activities they provide. The SupportAdventure website ( provides practical guidance for adventure activity operators on developing good practice safety management systems. It includes information and examples for developing a safety management plan. This guideline and the SupportAdventure website act as companions to the health and safety legislation. They are not part of the health and safety legislation, but following their recommendations will help operators to meet legal requirements to take all practicable steps to identify and manage hazards. An investigation into an accident may look at how well an operator followed this guideline. Hazards can be identified and managed by following this guideline, or in other ways that achieve the same level of safety (or better). Before departing from the recommendations given here, seek advice from an AH technical expert or other competent person. An operator will need to be able to justify why they use a different method from the guideline. The onus of responsibility for making safe decisions remains with the operator. Alpine Hiking Activity Safety Guideline Public Consultation 31 July 2015 Page 8

10 1.5 Using this guideline to build safety into your SOPs As an operator, you need to have an overall safety management plan that you use to manage health and safety in your operation. You also need to have standard operating procedures (SOPs) for each activity you provide. This guideline provides good practice safety recommendations to help you develop your SOPs. Many of the section titles in this guideline will correspond with headings in your SOPs document. However it is important to consider all the recommendations in this guideline as you develop your SOPs. A significant hazard is often managed by a number of different strategies and, like your SOPs, using a section of this guideline in isolation could lead to missing important safety recommendations. When developing your SOPs conduct trip, route and site specific hazard assessment, consider the recommendations in this guideline and add the relevant procedures to your SOPs. Note that where this guideline gives examples they are not exhaustive think of other examples that could apply to your specific activity. It is acknowledged that hazards can be managed in ways other than those recommended in this guideline and achieve at least the same level of safety. Before operating in ways other than those recommended in this guideline, seek advice from an AH technical expert or other competent person. You will need to be able to justify why you use a different method from this guideline. It is essential that guides conduct ongoing dynamic hazard assessment and management during the trip or activity. The onus of responsibility for making safe decisions remains with the operator. 1.6 Use this guideline to help you pass independent safety audits The Adventure Activities Regulations may require AH operators to obtain and pass independent safety audits. Safety audit standards specify the standards or requirements that adventure activity operators must comply with to reduce risks when providing adventure activities. Safety audit standards will specify: the general standards and requirements for all operators that an operator s SOPs must conform to good practice for the activity. This guideline sets out recommended good practice for AH and will therefore help operators and safety auditors to assess whether an operator s SOPs conform to good practice. To view the Adventure Activities Regulations safety audit standard go here: Alpine Hiking Activity Safety Guideline Public Consultation 31 July 2015 Page 9

11 Section 2 The Hazard Management Process This section looks at the following steps in the hazard management process: identifying and assessing hazards managing hazards dynamic hazard management managing the hazard of drugs and alcohol using competent persons incident reporting, reviewing and learning. The hazard management process is a key part of an overall safety management plan. The steps involved enable hazard management to be built into standard operating procedures (SOPs). Hazard management processes need to be driven by a positive safety culture. Apply hazard management processes to all operational situations including new activities, dynamic hazards and when there are changes to equipment. Hazard management involves both a scheduled and dynamic approach to identify, assess, manage, communicate and record hazards in every part of an operation. For an explanation of the terms practicable steps, significant hazard and serious harm see Appendix Identifying and assessing hazards Identify significant hazards both systematically and dynamically. The systematic part of identifying hazards should use a variety of methods such as: inspecting sites physically studying maps and photographs consulting with other industry operators and non commercial users reviewing standard operating procedures reviewing past incident reports and lessons learned using Info-Ex reviewing past hazard information, such as snowpack data, and looking for trends Assess all hazards to identify which ones are significant. Align assessment and rating systems with current good practice and take into account the nature and context of the activity. 2.2 Managing hazards Manage hazards according to the eliminate, isolate, minimise hierarchy of action. Due to the inherent risk of AH activities some hazards cannot be eliminated or isolated, and can only be minimised. Hazard management should reduce the risk of harm to acceptable levels. What these acceptable levels are will depend on the nature and context of the activity, participant ability and on current good practice. Alpine Hiking Activity Safety Guideline Public Consultation 31 July 2015 Page 10

12 2.3 Dynamic hazard management Managing hazards includes monitoring them for changes in their significance. A higher level of management such as moving from minimising to eliminating may be necessary if a hazard increases in its likelihood to cause serious harm. For example an unfavourable weather forecast may mean that an activity or trip should not take place or should be modified. Ensure your SOPs contain the relevant dynamic hazard management strategies. 2.4 Managing the hazard of drugs and alcohol The Adventure Activity Regulations explicitly require operators to manage the drug and alcoholrelated risks in their workplaces, starting with a clear drugs and alcohol policy in their safety management plan. Auditors will expect to see a policy suited to the risk within the operator s workplace, and evidence that it is being implemented. To see the MBIE guidance document on managing drugs and alcohol-related risk in adventure activities go to Using competent persons Use suitably competent people to identify, assess and manage hazards. For more information on staff competence see Section 7.3 Ensure the competent person(s) is familiar with the operator s safety management system, participant market, relevant site specific information, and has access to historical information on site hazards and incidents. 2.6 Incident reporting and learning Report, record and analyse all incidents and concerns that affect safety or have the potential to affect safety. This is done to enable learning and to help stop the incident happening again. Act on anything you learn. Incident reporting systems need to be used effectively. Induction and ongoing training are vital, but are only a part of ensuring that this happens. The system must be openly and regularly used, particularly by senior staff, to have any chance of success. To encourage responsible reporting, take care to think of reporting and recording separately from the incidents themselves. Avoid penalising people for reporting incidents. Good reporting and recording should be seen as positive behaviour irrespective of whatever faults may have led to an incident. For more information on hazard management processes go to For more information on incident reporting go to Alpine Hiking Activity Safety Guideline Public Consultation 31 July 2015 Page 11

13 Section 3 The Hazards Most Likely to Contribute to Serious Harm This guideline focuses on preventing death or other serious harm. While all significant hazards need to be managed, it is acknowledged that there are some that are more likely to be associated with serious harm than others. Ensure safety management strategies are focused on managing these hazards. This includes highlighting them in staff meetings and regular hazard management reviews. Alpine Hiking can be high risk, depending on the weather conditions, terrain and remoteness of the trip or activity. Pre-trip planning, terrain assessment, site assessment, thorough profiling of the participants, being adequately equipped, staff competence, dynamic hazard management and situational awareness are critical components of good practice. The most likely causes of serious harm in the AH sector are impact injuries from falling, sliding or slipping, avalanches, external impact, drowning and hypothermia. The hazards considered most likely to contribute to these are: unsuitable environmental conditions, e.g. weather or snowpack unsuitable participants fitness, skills, staff/participant ratios and pre-existing medical conditions unsuitable route selection terrain hazards, too long, too technical or too exposed unsuitable site choice for an activity or shelter poor guiding decisions, group management, pace setting, situation awareness, supervision and/or lack of knowledge for the track, route or site unsuitable staff not being suitably equipped for the terrain, environmental conditions and emergency situations. Good practice for managing each of these hazards involves a number of different strategies. When developing your SOPs ensure you consider all the relevant recommendations in this guideline using a section of this guideline in isolation could lead to missing important safety recommendations. Alpine Hiking Activity Safety Guideline Public Consultation 31 July 2015 Page 12

14 Section 4 The Environment There are particular factors of the AH environment that are associated with serious harm. This section identifies good practice hazard management strategies for dealing with these factors: remoteness terrain environment the hazards from other users the risks of allergic reactions protecting the environment. The information in this section should not be considered all-inclusive. It is essential to carry out operational, route and site specific hazard management processes. Furthermore, ensure APs are required to conduct ongoing dynamic hazard identification, assessment and management throughout the trip. 4.1 Remoteness The risks of poor planning and/or being poorly equipped Any element of poor planning and being poorly equipped can be exacerbated in a remote alpine or sub-alpine environment. Robust trip planning and management are essential. Pre trip and activity planning: estimate trip travel times, distance, elevation gain/loss, daylight hours, group size, participant profiles, staff/client ratios, supervision levels, complexity of navigation, complete a terrain analysis, monitor snow conditions, river levels and weather identify safe zones and contingency routes ensure all participants have the required clothing, equipment and any essential personal medication. Is the trip or activity suitable for the group and each individual? Have the participants disclosed safety critical information? Has a full disclosure of the risks plus their roles and responsibilities been communicated to the participants? Is all the equipment fit for purpose? Trip management: Ensure that all planning, operational and equipment maintenance checks are completed. set up daily procedures for planning and checks during multi-day trips on multi-day trips ensure you can access up-to-date weather forecasts, river flows and avalanche forecasts if applicable Brief participants on trip-specific safety hazards and procedures, including any role they may have to play in an emergency. Alpine Hiking Activity Safety Guideline Public Consultation 31 July 2015 Page 13

15 Maintain situational awareness with respect to terrain conditions, weather, location, speed of travel and the time of day. If terrain conditions or weather are not what was expected or are forecast to change, consider modifying the trip or cancelling. Ensure you can access to up-to-date information and forecasts. Be prepared to share the route, instructional sites, hut and campsites with other users. What impact could they have on your trip or activity from a safety perspective? The difficulty of getting assistance in emergency situations Limited access, weather and/or communication options can make emergency evacuation difficult and lead to lengthy waits for external emergency support. Identify and assess the: degree of remoteness complexity, severity and scale of incidents including the sudden onset of illness at any stage or time of the trip communication options emergency equipment and training required staff competencies consider that heli and emergency services may not be immediately available. Operating procedures Ensure that sufficient equipment is available to manage group safety during a delay in accessing assistance sufficient first aid supplies, emergency shelter, two-way communications, insulation mats, torches, heat sources and food. Be prepared for an unplanned night out or the use of an emergency shelter. Cache emergency equipment if practical. Consider that heli and emergency services may not be immediately available. Map the emergency shelters, communication options and heli evacuation sites. Consider including the aircraft operators in planning and training for emergency scenarios. Staff Staff must have an appropriate and current first aid qualification. Ensure staff are prepared and trained for a range of emergency situations. Participant and group management Participants know how to activate an emergency call out if the AP cannot, for any reason. Disclosure to the participants that medical services may take time or be delayed due to adverse conditions. Comprehensive pre-screening of medical conditions. Record all pre-existing health issues and ensure all necessary medications are available at any time of the trip this may require diligent management in larger groups or when a group is using more than one guide. 4.2 Terrain Scope: alpine and sub-alpine tracks, routes, instructional sites, shelters and campsites Terrain hazards Identify and assess the type of terrain where the trip or activity will take place. Hazard management strategies should be based on the associated risk. Options include: Alpine Hiking Activity Safety Guideline Public Consultation 31 July 2015 Page 14

16 analyse the terrain for hazards such as avalanche terrain or river crossings use terrain that is within the group s ability does it match their expectations, experience and fitness as a group and as individuals? ensure trip planning identifies how the terrain could change during the trip APs dynamically identify and assess terrain hazards throughout the trip situational awareness if terrain conditions (and/or weather) are worse than planned for, consider alternative routes or objectives identify and map no go zones, safe zones and contingency routes and sites network any recent changes Changes to the hazards of terrain Significant events such as earthquakes, volcanic activity, avalanches, slips, floods, tree or rock fall may affect known existing hazards or create new hazards. Ensure that systems are in place to check and maintain tracks or otherwise manage hazards after environmental events that could have changed or created hazards. Ensure that DOC, land owners, managers or other people who may be aware of hazards on the trip know of the importance of communicating relevant hazard information to the operator and have the information they need to do so, such as telephone numbers. Record any changes to hazards, identify those that are significant and notify relevant staff and other users of the area The risk of slipping, sliding or falling in dangerous terrain Scope: walking, trekking, instructional activities, sites, traversing, boulder hopping (rivers and routes), steep slopes and ridges AH can include the risk of participants and APs slipping, sliding or falling in dangerous terrain. Identify and assess all terrain for the likelihood of participants slipping, sliding or falling. This also applies to intentional falling and sliding during instructional sessions, such as self-arrest training. Factors to consider when identifying hazards are: are they are likely to fall (given terrain conditions and the participant s ability)? is the slip, slide or fall likely to cause harm (given hazards like rocks, bluffs or hitting others)? are the conditions likely to change and increase the risk, such as an overnight freeze? Ensure that APs are also protected from slipping, sliding or falling from height not just the participants. The concept that no controls are needed where a person faces a 3 metre fall or less is incorrect. Manage the risk of falling any time a person could be injured if they slip, slide or fall. Alpine Hiking Activity Safety Guideline Public Consultation 31 July 2015 Page 15

17 Hazard management strategies should be based on the associated risk. Operating procedures select routes and sites that eliminate or minimise the likelihood and/or the consequences assess the run out for hazards wear helmets when appropriate the correct selection and technical use of poles, snow shoes, ice axes and crampons spacing and positioning of the participants so they don t hit each other safe spotting techniques for the participant and AP the use of hand lines for confidence cutting steps modify the ratios, supervision levels and positioning of the group appropriately APs to constantly identify, supervise and manage. Group Management Manage general exposure to the risk of falling by ensuring that people stay far enough away from edges to eliminate the risk. This will often include establishing safe zones back from an edge and communicating these clearly to participants. Space participants at distances that ensure they will not cause each other to fall, and if someone falls they will not land on another. Ensure that individual participants supervision levels and strategies are in line with their needs. Factors to consider are the participants fitness, agility, confidence, experience, fatigue and the time of the day. Note: It may be necessary to use technical systems such as abseils, via ferrata and technical mountaineering skills. Managing the risks associated with these activities are covered by other Activity Safety Guidelines such as abseil, high wire and swing. Technical mountaineering skills are out of the scope of this guideline The dangers of an uncontrolled avalanche Uncontrolled avalanche environments are those not actively controlled for avalanche hazards. Avalanches are one of the most likely sources of serious harm incidents involving multiple persons. Some operations will choose to use a ski field to run their trip and activities. They must ensure that they have daily and regular access to reports of conditions for the areas they are using, throughout the duration of the activity. All operators should have, as part of their SOP, an Avalanche Hazard Management Plan that is specific to their operation and includes the following: Alpine Hiking Activity Safety Guideline Public Consultation 31 July 2015 Page 16

18 A review of the general area of operation identifying the probability of an avalanche hazard based on how often the environment has enough snow on the ground for it to be at threshold (6-12 months per year, 3-6 months per year, 1-3 months per year, 1-4 weeks per year, every few years) A process for attaining an avalanche stability/danger forecast as suitable for staff qualifications, training, and accessing outside resources (Info-Ex avalanche.net.nz or support from a local snow sports area) Identify any probable avalanche terrain used. This may be classified into avalanche paths, and/or consequence zones (e.g. Avalanche Terrain Exposure Scaleor safe spots. This may also include alternate routes using non-avalanche terrain List the resources that will be required by staff and participants, available on the mountain (cached in hut or vehicle), and stored at a base area Describe the minimum levels of experience, training and qualification required by both the AP, operations staff and the activity participants The Avalanche Hazard Management Plan should be externally endorsed by a MSC Avalanche Safety Management Stage Two practitioner or another appropriate person The risk of rock fall and other falling objects Identify and assess for the likelihood that participants could also be exposed to rock fall, sliding and falling hazards. Reducing this exposure to acceptable levels relies heavily on robust trip management systems and competent staff. Factors to consider are: unstable scree and terrain traps like gullies and moraine walls participants dislodging rocks onto others other user groups dislodging objects the effects of recent heavy rain, high winds or ice. Hazard management strategies should be based on the associated risk. Options include: select and adjust routes to eliminate or minimise avoid terrain that collects and channels loose rock or other falling/sliding objects monitor & observe for evidence of previous rock fall group management adjust the supervision levels instruct the participants on how to move and minimise dislodging rocks use traversing lines on ascent descend on individual fall lines group management, avoid climbing under others don t be stacked on top of each other stabilise or remove loose rocks when possible wearing helmets identify and use safe zones monitoring other user groups in the area situational awareness by the APs to constantly monitor, supervise and manage. Alpine Hiking Activity Safety Guideline Public Consultation 31 July 2015 Page 17

19 4.2.6 The risk of dangerously high or swift moving water river crossings Access to AH environments can often include crossing rivers. If the water is too high or swift, people can be exposed to the risk of drowning or impact injuries. Other consequences can be hypothermia, group separation, losing equipment and being stranded. Do you really need to cross? Refer to river crossings in Section Weather The effects of weather and other natural events AH can be exposed to the effects of weather events such as high winds, heavy rain and lightning. Natural events can be volcanic activity or earthquakes that can create rock fall, gas clouds and landslides. Hazard management options include: identifying and assessing the risk of hazardous weather and other natural events ensuring that pre-activity procedures include checking that conditions are suitable ensuring APs know and use the best available methods for predicting mountain conditions such as forecasting services and local indicators two-way communications to access the latest forecasts and reports throughout the trip using local no-go indicators and procedures for cancelling due to concerns about conditions establishing procedures for when alpine conditions change, such as safe waiting areas, emergency supplies, escape routes and evacuation establishing a range of support and emergency procedures briefing the participants on their roles and responsibilities The effects of environmental extremes on people Scope: hypothermia, cold injuries, snow blindness, dehydration, severe sunburn and heat stroke/hyperthermia Strategies for managing environmental extremes should be based on the associated risk. Options include: managing the start times and duration of trips and activities to suit the environmental conditions ensuring that clients are equipped with correct layers of clothing AP s competencies include prevention strategies and management and knowledge about clothing layering participants are regularly rehydrating and eating carrying extra thermal clothing, emergency shelter/s, insulation mats, food, water and heat sources minimising the time clients are exposed to cold or heat while waiting their turn at the activity, such as using a shelter or running other activities. Alpine Hiking Activity Safety Guideline Public Consultation 31 July 2015 Page 18

20 4.3.3 The risk of limited visibility Factors to consider are: getting lost group separation terrain hazards such as edges or bluffs slowing down the pace of the trip possibly resulting in a night out no helicopter access if required for an emergency. Strategies for managing: ensure APs are familiar with the terrain and hazards ensure APs are competent navigators and are equipped with the relevant references and equipment keep the group together APs continuously monitor weather, dynamic hazards, time management, pacing, participants ability and fatigue the group is self sufficient and can spend a night out or deal with delayed help in an emergency. 4.4 The hazards from other users Other users can create rock fall, avalanches and other hazards. notify and coordinate with all other known users of the area APs to monitor other groups in the area. Contingency plan around the limitations resulting from other users, such as the loss of a camping site, hut, snow shelters or instructional site. In snow sport areas ensure your activities are in pre-approved areas and that your presence is known even after hours so that snowmobiles and groomers are aware of you. 4.5 The risk of allergic reactions Scope: food, medication, bee and wasp stings. Access to tracks, routes and sites can often include environments suited to wasps and bees. Participants may also be allergic to other substances. Strategies for managing should be based on the associated level of risk. Options include: screening participants for any known allergies carrying epi-pens or adrenalin train guides in their use if participants know they are allergic then ensure they are carrying their medication consider that not all participants know their allergies so be prepared Alpine Hiking Activity Safety Guideline Public Consultation 31 July 2015 Page 19

21 Bee and wasp avoid disturbing hives consider placing those who are allergic at the front of the group consider doing a thorough check on conditions with DOC, landowners or other users before entering an area. 4.6 Protecting the environment Alpine and sub-alpine environments are often wild and unspoilt areas. Operators and their participants should follow the environmental care code at all times. Alpine Hiking Activity Safety Guideline Public Consultation 31 July 2015 Page 20

22 Section 5 Alpine Hiking Activities This section looks at the primary AH activities in non-technical terrain. It identifies significant hazards and good practice for managing those hazards. The activities are: walking site management instructional sessions and campsites river crossings being transported by helicopter. The information in this section should not be considered all-inclusive. Use it in conjunction with the recommendations in the rest of this guideline. It is essential to carry out site and activity specific hazard management processes, and for APs to conduct ongoing dynamic hazard identification, assessment and management. 5.1 Walking Scope: includes the use of walking poles, snowshoes, ice axes and crampons in non-technical alpine and sub-alpine terrain. Factors to consider when identifying and assessing hazards are: is the terrain within the group s ability does it match their expectations, experience and fitness as a group and as individuals? is the clothing and equipment appropriate and fit for purpose? And the expected conditions? does the equipment fit correctly and safely? are the APs competent for this trip, with these participants and in these conditions? are the supervision ratios appropriate for this trip and the needs of the group? have the participants been informed about the risks and have they acknowledged them? do the participants understand their safety requirements during the activity? have the participants disclosed medical and safety critical information? where and how could the group separate and/or some participants get lost? how is the group prepared for emergencies? Alpine Hiking Activity Safety Guideline Public Consultation 31 July 2015 Page 21

23 Strategies for managing should be based on the associated risk. Options include: apply Section 4 where applicable ensure all the equipment is fit for purpose with thorough pre-trip checks check that the equipment fits correctly stipulate when and where to fit and instruct on the use of the gear run a warm up session to test the gear and the ability of the group pace the trip to suit client fitness set up a buddy system and designate a tail ender brief the group on clear no go areas ensure there are clear group management strategies around toilet breaks, taking photos or where there could be opportunities for the group to split up ensure the staff are competent for the requirements of the trip ensure the ratios and supervision levels are appropriate. 5.2 Site management instructional sessions and campsites Instructional scope: snowshoes, ice axes, crampons, self-arrests, navigation exercises, avalanche awareness courses, snow shelters and tenting. Generic site management Apply Section 4 where applicable. Instructional sessions Factors to consider when identifying and assessing hazards: using an unsuitable site not all terrain hazards have been identified, such as rocks in the run out participants hitting each other poor guiding and instructing progressions poor supervision levels participants not following instructions group management issues participants using clothing and equipment unsuited to the conditions. Strategies for managing should be based on the associated risk. Options include: apply Section 4 where applicable complete a site and terrain analysis ensure the staff are competent for the site and activity ensure the ratios and supervision levels are appropriate check that the participants understand and are gaining confidence. Shelters and camping Factors to consider when identifying and assessing hazards: Alpine Hiking Activity Safety Guideline Public Consultation 31 July 2015 Page 22

24 collapse of snow shelters leading to injuries, loss of shelter and/or an emergency tents or snow shelters are inadequate for the conditions participants are inadequately prepared for a night out participants are fatigued, cold and wet, thus susceptible to hypothermia burns from poor cooking procedures and/or equipment carbon monoxide poisoning from cooking in shelters with poor or no ventilation sliding hazard, the participants have not been prepared for overnight freeze and icy conditions in regards to trips to the toilet or other the snow sports operator is unaware that you are in their area. Strategies for managing should be based on the associated risk. Options include: apply Section 4 where applicable choosing the most appropriate method to make a snow shelter check that the participants have all the necessary equipment, such as sleeping bags check that the snow cave is unlikely to collapse ensure access to emergency shelters set up safe cooking systems that are well ventilated prepare participants for icy conditions ensure that all other groups know where you are. 5.3 River crossings Access to AH environments can often include crossing rivers. If the water is too high or swift, people can be exposed to the risk of drowning or impact injuries. Other consequences can be hypothermia, group separation, losing equipment and being stranded. Always assess whether you really need to cross. Factors to consider when identifying and assessing the hazards include: water depth, speed of water, water volume, water temperature, entry and exit points, run out, characteristics of the river bed, bends and curves in river, weather and rainfall, catchment size, strainers, foot entrapment, group size and group experience the consequences of anyone in the group slipping, swimming and/or not making the exit point drowning impact injuries potential for hypothermia in respect of clothing, gear and physiology participants response to cold water immersion loss of packs and equipment group member is swept away the group separating the group is stranded safety critical equipment being inoperable or ineffective from water damage, such as communication devices. Strategies for managing should be based on the associated risk. Options include: Alpine Hiking Activity Safety Guideline Public Consultation 31 July 2015 Page 23

25 apply Section 4 where applicable select a technique that is suitable for the group and site use do not cross indicators mark alternative crossings on the map and in the SOP monitor the weather and catchment areas ensure APs are competent in assessing and managing river crossings carry emergency shelters and extra group food ensure all safety critical equipment is protected from water damage. Do you have to cross? Assess the group, conditions and time of day and be prepared for an unplanned night out or use of emergency shelter if you can't cross. 5.4 Being transported by helicopter The primary duty of care is with the helicopter company. Ensure you have clear operating procedures with the helicopter operator. Factors to consider when identifying and assessing hazards include: rotor blades contacting people or gear helicopter landing triggering an avalanche flying debris due to rotor wash sliding while disembarking poor weather stopping the helicopter from flying and stranding people in the field. Strategies for managing should be based on the associated risk. Options include: ensure that clients near the helicopter stay in designated waiting areas, both before and after landing, until the helicopter has left or the rotor blades have stopped turning. Ideally establish these waiting areas in the pilot s field of view do not leave clients unsupervised near the helicopter ensure clients do not operate helicopter doors or lockers instruct clients to take extreme care if disembarking on surfaces that involve a sliding risk. Alpine Hiking Activity Safety Guideline Public Consultation 31 July 2015 Page 24

26 Section 6 Alpine Hiking Trip, Site and Activity Management Alpine hiking site and activity management includes ensuring each AH is staffed and monitored effectively and that the most practicable communications systems are in place. 6.1 Guide knowledge of the trip, site and systems Use APs competent in the skills required to manage the trip and activity. For more information see Section 7 Ensure that APs are familiar with the hazards of the site they are working and with the operator s standard operating procedures for the trip and activity. The amount of training this requires will vary. Factors to consider include: the specific hazards and associated safety management strategies of the trip, activity and site the complexity of the activity the staff/client ratio of the trip the competence of the AP. 6.2 Trip monitoring Monitor group safety with a suitable backup person and on-site monitoring. Backup monitoring Ensure there is a suitable backup person for each trip and activity. Ensure there are control procedures in the SOPs for the roles and responsibilities of each person. Ensure they are as contactable as practicable while the activity is underway. This may require 24 hour monitoring in some circumstances and the use of schedules to check in. Note: the backup person should not be involved in the activity. On-site monitoring Ensure every trip and activity site has a lead AP who is responsible for monitoring general site safety and ensuring the activity follows the operator s SOPs and emergency response procedures. This person should be an experienced AP whom the operator is confident will exercise good judgment under pressure. Note: This does not remove the responsibility for each individual AP to manage the safety of participants within their supervision ratio. Alpine Hiking Activity Safety Guideline Public Consultation 31 July 2015 Page 25

27 6.3 Communication systems Communication systems need to cover communication between those on trip, activity or site and those monitoring the activity or other external emergency support, and where relevant between guides running the activity. Communication technology is evolving so keep up-to-date with the latest options. Communicating with external support Ensure each site has a primary communication system, and that a backup system is available if the primary system is likely to be compromised. Compromising factors could include getting wet or being damaged from an impact. The primary system should be the most effective option practicable and should be two-way. Examples of communication systems include: a robust check in/check out or scheduled procedure a cellular phone a satellite phone two-way texting devices (be aware there can be delays in sending and receiving texts) one-way devices such as personal locator beacons or SPOT trackers. Where a communication device is used that relies on coverage, ensure that APs and back-up personnel are aware of coverage and non-coverage areas. Difficulty in communicating with external support can be a significant hazard when activities are run in remote areas. Communication between APs running the same trip or activity If APs are working together to manage safety of the same trip or activity ensure they can communicate easily or are managing tasks that do not require them to communicate with each other. Alpine Hiking Activity Safety Guideline Public Consultation 31 July 2015 Page 26

28 Section 7 Staff Using competent staff is one of the mainstays of ensuring safety. This section looks at five key factors of staffing an operation: identifying safety responsibilities and competence requirements verifying competence guide competence recommendations ongoing staff training identifying and dealing with unsafe staff. 7.1 Identifying safety responsibilities and competence requirements Ensure the safety responsibilities and competence requirements of each job within the operation are correctly identified. These jobs should include operations management and AP roles. Identify the skills and knowledge required to meet these responsibilities. When identifying a job s competencies, factors to consider include: levels of experience and judgment personal technical skills, including equipment knowledge risk management, group management and leadership skills ability to operate in accordance with standard operating procedures familiarity with and understanding of the operational environment ability to communicate safety requirements/directions clearly to the client rescue and emergency management skills including first aid.* Ensure there are clearly defined roles and responsibilities between trip leaders, and between trip leaders and participants. *Ensure the number of staff with first aid qualifications, and the type of qualifications they hold are suitable for the likely first aid scenarios of the operation. See section 7.3 for competence recommendations. 7.2 Verifying competence It is the responsibility of the operator to ensure that staff are competent. This section looks at how to use qualifications to verify skills, and how to verify those skills which are not covered by qualifications. Using qualifications Operators should ensure they know which skills and knowledge a qualification actually measures. The operator should then check these against those required for the job. Any skills, competencies or knowledge not covered by the qualification should be verified by other suitable means. Establishing equivalency between qualifications When establishing equivalency of one qualification with another (or parts thereof) an operator should contact the benchmark qualification provider and enquire as to the process they recommend. Qualifications currently under review Several of the qualifications recommended in this guideline include avalanche award components, which are part of the New Zealand Qualifications Authority (NZQA) Framework. Qualifications on the Alpine Hiking Activity Safety Guideline Public Consultation 31 July 2015 Page 27

29 NZQA Framework are currently being reviewed. Any results of this review that affect the AH sectors recommendations for verifying competence will be included in this guideline as they become available. For more information on the overarching qualification review go to Skills not covered by qualifications Verify competence in all safety skills required for a role. Skills not covered by nationally recognised qualifications should be measured in a way that suits the degree of safety responsibility associated with the skills. Use a suitable person to verify competence. This person should have a qualification to do so, or be a technical expert in the skill to be verified who also understands national expectations on the standard of competence required. Keep records of competence verification processes and results. For more information on verifying staff competence go to AH guide competence recommendations This section looks at competency recommendations for AH APs. The AH sector involves a significant level of inherent risk, thus relies on staff competence to manage that risk. The sector uses nationally recognised qualifications to verify staff competence. This section does not address broader safety related roles such as operations management. Ensure that all the operation s safety responsible roles are identified and the staff are competent. Competency requirements This section identifies the technical safety responsibilities and competency requirements for APs conducting AH. The onus is on the operator to ensure the qualification they use for competency of staff matches any terrain guidelines, exclusions and limitations. For more information, including more detailed skill breakdowns, go to the administering organisation s website. NZMGA Qualifications IFMGA Mountain Guide NZMGA Climbing Guide Assistant Climbing Guide Alpine Trekking Guide Assistant Alpine Trekking Guide Hard Ice Guide NZOIA Qualifications Alpine 1 - Instructor Alpine 2 - Senior Instructor Bush 2 - Senior Instructor Bush 1 - Instructor (pre-requisite for Alpine 1 and 2) Alpine Hiking Activity Safety Guideline Public Consultation 31 July 2015 Page 28

30 7.4 Ongoing staff training Regularly train all staff involved in safety and emergency procedures, including office staff and external contractors. Use a structured training plan managed by a person competent to do so this is often a role of the senior AP. Operators should record training to help show verification of staff competence. Ensure training occurs at least pre-season, covers SOPs and emergency procedures, and highlights procedures that are new or have changed. For training recommendations for emergency procedures see section 10. For more information on staff training go to Identifying and dealing with unsafe staff Do not permit a person to conduct or undertake safety related tasks if they are in such a state of impairment that they may be a hazard to themselves or to any person on the trip. Impairment could be due to alcohol, drugs, injury, fatigue or illness. Identify as a hazard any guide who is unable to perform safety tasks as required to fulfill the responsibilities of their role. Management strategies should suit the significance of the risk and be outlined in the staff management aspects of the operator s safety management system. The Adventure Activities Regulations require that drug and alcohol hazards are specifically addressed through an explicit drugs and alcohol policy. Initial hazard management for dealing with unsafe staff should include removing the person from the role requiring performance of safety tasks. To see the MBIE guidance document on managing drugs and alcohol-related risk in adventure activities go to Alpine Hiking Activity Safety Guideline Public Consultation 31 July 2015 Page 29