Management of Memorials

Transcription

1 Institute of Cemetery & Crematorium Management Management of Memorials Summary Version Revised April 27

2 Contents Glossary 2 1. Introduction Responsibility and Liability 2. Design and Construction and Installation Memorial Design Memorial Installation Burial Ground Design Issues 3. Inspection and Making Safe of Memorials General Issues Management Issues Raising Awareness Warning Signs/Notices Notifying Grave Owners Training Risk Assessment Programme of Work 4. The Inspection Process Process and Inspection Records 5. Management and Administration of Memorial Safety Legislative Issues Memorial Rights, Guarantees and Insurance 6. Professional Conduct and Control Registration Scheme Supervision Guarantees Management Rules and Regulations Additions to Approved Memorials Please note that this guidance provides for minimum standards of safety in burial grounds. Nothing in this guidance prevents burial authorities from deciding to require higher standards of safety. For instance, if a burial authority wishes to restrict all new memorial installations to monolith memorials, or if they wish to inspect memorials every year instead of every five years, they are able to do so within the terms of this guidance.

3 1. General Responsibility & Liability 1 The memorial owner has a responsibility for ensuring their property is installed and maintained in a safe manner and should be encouraged to have the memorials suitably insured and maintained at regular intervals. 2 Under Health and Safety at Work Act 1974 and Occupiers Liability Act 1957 overall responsibility for health and safety lies with the burial authority as they have a duty to make sure sites are maintained in such a way that risks are properly managed. 3 Burial authorities should prepare a simple memorial safety policy identifying how they will inspect and make safe memorials. 4 Burial authorities should carry out regular safety inspections at least once every 5 years (see recommendations later). 5 Any work required on memorials in consecrated ground will need a faculty, an application for which should be made before work commences. 6 The memorial mason has a responsibility to erect a memorial safely. They are also legally liable for their standard of workmanship and owners are protected under general consumer protection legislation should a memorial fail in the first 6 years (5 years in Scotland). 2. Design Construction and Installation 7 The safest memorial installation is a monolith memorial (single piece of material set approximately a third into the ground). This type of installation should be encouraged, however, choice should be allowed in the design of the memorial. 8 A choice of safely installed memorials in any material including steel or wood should be allowed, providing the installer can submit evidence that the memorial will comply with BS All memorials should be fitted to a quality specification such as the NAMM Code of Working Practice and BS Memorials should withstand the 35 Newtons (circa 35kg) force used for inspections. Any damaged joints should be repaired by the mason at no cost. 11 All new memorials should be installed on virgin (undisturbed) ground where this is possible and should not be disturbed by future burials. 12 When designing a burial ground one or both of the following should be considered, where space exists for larger plot sizes. Lawned sections - back to back memorials placed on virgin ground or concrete raft and with a minimum spacing to suit ground conditions Traditional sections - The same principle should also apply although plots may not be back to back Design should account for differing site conditions and care taken to use a suitable foundation/ memorial stability system. 13 All excavation and backfilling of graves should be carried out by trained staff to in accordance with ICCM Code of Safe Working Practice or equivalent. This is particularly important if the memorial is not placed on virgin ground or on a concrete raft. 3. Inspection and Making Safe 14 It is extremely important that managers of burial grounds consider the advice contained within this document when deciding what their policy will be with regard to memorial safety. Compliance with the advice given in this document will provide some protection for the burial authority.

4 15 Training - In addition to using this guidance it is essential that training is provided for persons responsible for the inspection and make safe work (as identified in the Ombudsman s Special Report on Memorials). Cost effective training and advice is available from the ICCM. 16 Risk Assessment - Risk assessment is central to the whole inspection and make safe process. A number of decisions need to be made based on sound risk assessment: Where the inspection process will start and how it will proceed - Considering age size of memorials, number of visitors, vicinity of roads and footpaths, ground conditions etc. What is the most suitable means of making safe?- Considering the extent of the risk and the most appropriate way to remove the risk or significantly reduce it. A range of different methods are available such as setting memorials into the ground, installing temporary support systems, laying flat or full repair. What is the risk to employees carrying out any inspection or making safe work? Considering the range of memorials, types of hazard and type of work undertaken. These risks must be managed and there will be a need for documented risk assessments and safe methods of work for all who work in the burial ground, including employees, memorial masons and funeral directors. The above risk assessment information is for guidance purposes only, lists are not to be considered all-inclusive but indicative of the types of risks that should be considered. Further guidance should be sought from officers/consultants that normally provide health and safety advice to the burial authority. 15 Awareness and Notification - Memorial inspection and make safe work is incredibly sensitive work and it is essential that grave owners and other members of the public are informed about the process and the reasons for it. Good publicity prior to starting any work is essential to ensure a wide range of public are suitably informed about the inspection and make safe process. Publicity should then be ongoing whenever inspections take place. Publicity will include: a. Press Releases and Notices Advising the public of the inspection and make safe process b. Warning Notices - Prominent warning notices should be placed at the entrances of and throughout the burial ground. Notices should indicate the potential danger posed by unsafe memorials c. Notification of Grave Owners - Burial authorities should notify grave owners when memorials are found to be unsafe by writing to the last known address of the owner. 17 Inspection and Reduction of Risk - Inspection work should be co-ordinated with the making safe of memorials. Where an unsafe memorial has been identified immediate action should be taken to significantly reduce the danger. This should be taken account of when drawing up a memorial safety policy. 18 Other Considerations - prior to the start of an inspection programme a number of other issues should be considered: Inspections on consecrated ground faculties must be obtained through the relevant diocese, prior to the inspection. Heritage value - consideration must be given to listed and scheduled buildings/memorials. Check with the local planning authority. Aesthetics - the effect of make safe work on the burial ground should be considered Environmental and ecological value consider the effects on flora and fauna and particularly Sites of Special Scientific Interest Maintenance - laying memorials down may increase grounds maintenance costs and add a significant number of trip hazards. 19 Only when all the above have been properly assessed can consideration be given to starting an inspection and make safe programme.

5 4. The Inspection Process 2 The inspection process is carried out in two distinct phases: initial inspection process - aimed at obtaining the necessary information critical to identifying the safety of the memorial. A memorial only poses an immediate danger if it will move, and continue to move, until it would fall to the ground at a force of 35 Newtons (circa 35kg) or less. Burial authorities should seek to complete the initial inspection within 12 to 18 months. ongoing inspection programme aimed at inspecting memorials on a minimum of a five yearly basis. 21 Burial authorities with limited funding should consider partnership working with larger authorities or with groups of small burial authorities. This will spread the costs of the process and allow burial authorities to comply with health and safety legislation. 22 Force testing equipment should not be used on listed memorials or memorials considered to be of historic value without first contacting English Heritage/Historic Scotland. 23Due to the huge range of memorials within burial grounds there is no definitive method of inspection, however, there is a methodology that adds a large degree of consistency into the process: 24 All memorials - All memorials in the burial ground should be visually assessed as part of the overall risk assessment process. Visual assessment forms part of the individual risk assessment for each memorial. Memorials in excess of 2.5 m will require inspection from a structural engineer. 25 Memorials up to 2.5 m Should receive a physical hand test, which is the gradual build up of a force at the apex of the memorial or as high up the memorial as can comfortably be reached by the operative, to a force of approximately 35 Newtons (circa 35kg). Training in this method is essential and should include the use of force measuring equipment to ensure the operative builds a muscle memory of the effort it takes to exert a force of 35 Newtons (circa 35kg). The physical hand test shall only take place following a visual inspection. 26 Memorials up to 1.5 m - It is recommended that, following the visual and the hand test, force measuring equipment be used as a final test on memorials up to 1.5m. The failure force can then be recorded, providing evidence to any potential complainant. Do not use equipment on memorials taller than 1.5m as this could result in a failure to identify a dangerous memorial. 27 Memorials below 5mm - These are difficult to test using force measuring equipment and are less likely to cause injury. A risk assessment should be carried out on memorials below 5mm to assess whether there would be any real benefit in applying a force of 35 Newtons (35kg) to the memorial. (Force measuring equipment should always be used in accordance with manufacturer s instructions.) Inspection Records 28 Every memorial must be inspected and a record made of the inspection. Records should include information that will assist in locating memorials in future inspections, information on the visual, hand and mechanical tests, an assessment of the priority and action to be taken to make the memorial safe. 29 The maintenance of electronic records is recommended to simplify the maintenance of the reinspection programme. 5. Management and Administration of Memorial Safety 3 Along with the right of burial in a grave is an inferred right to erect a memorial. Burial authorities should consider only allowing a right to erect a memorial for a reasonable period of time, such as 3 years. 31 Burial authorities should not permit a memorial to be erected without a guarantee of conformity

6 being issued by the memorial mason. This guarantee will ensure the memorial is installed to the current best practice within the industry. This should provide confidence for the bereaved that the memorial will remain stable for at least 3 years. 32 The right to erect a memorial should contain advice that the memorial will be inspected every five years. Insurance should also be provided for the memorial. 6. Professional Conduct and Control 33 Burial authorities should have standards of professional conduct for those who work in their burial grounds. A memorial mason s registration scheme should be in operation. Membership of a national registration scheme, such as the British Register of Accredited Memorial Masons (BRAMM) or equivalent, will help ensure that memorial masons are competent to fix to a suitably high specification, is highly recommended. 34 Once a registration scheme is in place it is still necessary to monitor the standards of the memorial masons. A simple process of random monitoring is all that is required along with a suitable administrative system that will receive applications and issue masons with permits to allow them to carry out work within the burial ground. 35 Unauthorised Memorials An issue with unauthorised memorials has developed over recent years and is linked to the limited choice of memorial available in lawn sections and a greater demand from the public for personalised grave spaces. This can become a safety issue when spiked fencing and other dangerous items appear on graves. 36 Management Rules and Regulations -- It is essential that as part of the memorial safety process burial authorities consider the rules and regulations that apply to their burial grounds. Rules and regulations should enable the proper controls to be exerted in the burial grounds whilst being easily understood, not too complicated and able to be justified if required. 37 Communication This is essential to effective management of the burial ground and should include quality information to the public in the form of informative leaflets, together with closer working between all parties involved in the bereavement process, including the burial authorities, the funeral directors, the memorial masons, the clergy, bereavement support organisations, registrars, hospitals etc.

7 Sample Risk Assessment INSPECTION OF MEMORIALS Department/Section.. 1. TASK OR ACTIVITY COVERED BY THIS ASSESSMENT Inspection of memorials. 2. WHAT SIGNIFICANT HAZARDS ARE ASSOCIATED WITH THE TASK / ACTIVITY (e.g. fire, electric shock, violence, fall from height etc. ): Potentially unstable memorials falling on inspector. Potential of unstable memorials falling on other persons Potential of sudden breakage of memorial or joint, causing inspector to fall. Poor manual handling techniques when making safe smaller memorials or components as part of inspection process. Poor inspection technique (particularly with prolonged inspections) increasing risk of muscular / skeletal injury. 3. PERSONS AT RISK Members of staff carrying out inspections. Members of the public in close vicinity. 4. EXISTING CONTROL MEASURES None

8 1. SEVERITY OF OUTCOME (tick as appropriate) Harmful injury or illness incurring time loss for subject/s Slightly harmful / minor injury or illness Serious injury or illness Life threatening or fatal injury or illness 2. PROBABILITY OF HARM (tick as appropriate) Unlikely/ Improbable Likely Highly Probable Certain 3. FINAL ASSESSMENT OF RISK (refer to risk estimator table) Low Medium High Very High 8. ACTION REQUIRED (continue on separate sheet if required) Comprehensive training in this discipline. Assess manual handling implications and carry out manual handling training Compliance with manufacturer s instructions on use of any pressure testing equipment. Warning notices for the public Action to be taken by (name) To be completed by (date) 9. ARRANGEMENTS FOR OCCUPATIONAL HEALTH MONITORING (where appropriate) Monitoring inspectors for any sign of muscular / skeletal problems. Name of Assessor: Date of Assessment: Review Due By:

9 TABLE 1 / 2 RISK MATRIX The matrix below is designed to help you in identifying a risk level for a given task or activity. Using your experience, the available evidence and existing precautions/ control measures in place you will have already determined the severity of harm, and the likelihood/ probability of the harm being realised in stages five and six of the risk assessment. The level of risk for the respective task or activity (Low, Medium, High or Very High) can now be determined using the following matrix. N.B. Levels of risk corresponding to the various combinations of severity of harm and likelihood of harm being realised are subjective and based upon the assessors perception and knowledge. The information given in the matrix and table below is provided for guidance only and may need to be varied in accordance with individual circumstances. Severity Probability Minor/ slightly harmful injury or illnesses Harmful injury or illness incurring time loss for subject/s Serious injury or illness Life threatening or fatal injury or illness Certainty Medium High High/ Very High Very High Highly Probable Medium Medium/ High High High/ Very High Likely Low Medium Medium/ High High Unlikely/ Improbable Low Low Medium Medium LEVEL OF RISK Low Medium High Very High SUGGESTED ACTION Control measures to be introduced on a medium to long term basis e.g. As equipment is renewed or as part of a planned programme of improvements Control measures need to be introduced within a specified time period Unless control measures to eliminate or reduce risk can be introduced immediately task or activity should be suspended Task or activity must be suspended and remain so until control measures to eliminate or reduce risk can be introduced - if risk cannot be reduced the task or activity must be prohibited

10 Glossary Burial Ground Burial Authority Contractor Dowel Dangerous Memorial Faculty Foundation Force Measuring Equipment Grave (Lair in Scotland) Lawn Memorial Memorial Memorial Mason Monolith memorial Temporary Support System Area set aside for interment such as Public or private cemetery, open or closed churchyard. Organisation responsible for managing a burial ground. Any person who is employed by the burial authority, or by a third party, to carry out work within the burial ground. This will include memorial masons, funeral directors and may also include grounds maintenance staff and gravediggers. A pin to align and to prevent movement between adjacent elements of a memorial. A memorial that fails an inspection at less than 35 Newtons (circa 35kg). (All subsequent measurements of force will be indicated in Newtons.) Written permission from the Church of England for prescribed work to be carried out. A part of a structure in direct contact with and transmitting load to the supporting ground. Equipment used to measure the force applied to a memorial during the inspection process. A place of burial below ground level which may or may not be lined. A jointed memorial with an upright stone fitted to the back of a base stone. This type of memorial is often between 6mm (2 ) and 12mm (4 ) in height and is a more modern design often found in abundance on lawn sections of English and Welsh cemeteries. An object erected in a burial ground in memory of a deceased person. A tradesperson responsible for installing memorials. One piece memorial buried between 25% and 35% into the ground. Under some ground conditions it may be advisable to fit the memorial into a "shoe" foundation piece. A system designed to reduce the risk of a memorial injuring anyone. Recommended only for use on a temporary basis.