SLSA Personal Protective Equipment (PPE)

337 Pages·2015·6.64 MB·English

SLSA Personal Protective
Equipment (PPE) Project
Final Report – Surf Sports
May 2015
Version Control
Version Author Date
1.1 Anthony Bradstreet 10 April 2015
1.2 Anthony Bradstreet 23 April 2015
Final Draft Anthony Bradstreet 1 May 2015
Final Draft - Amended Anthony Bradstreet 14 May 2015
FINAL Anthony Bradstreet 16 May 2015

Approved for Release

Greg Nance
Chief Executive Officer
Surf Life Saving Australia

Distribution
The final report is to be distributed to:
 SLSA Board
 SLSA Executive Management Group
 SLSA Surf Sports Advisory Committee
 Australian Surfboat Rowers League
 SLSA Capacity and Capability Consultative Forum
 SLSA Lifesaving Member Advisory Committee
 SLSA Lifesaving Management Committee
 SLSA Development Committee
 SLSA Education Management Committee
 SLSA Senior Management Team
 SLSA PPE Working Group
 SLS State Centres
 SLS Website
 SLS Members Portal
 SLSA Library

Cover Image: Lifesavers testing prototype Level 25 Lifejackets at Mooloolaba, Queensland.
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Contents
Executive Summary 5
Assumptions 8
Summary of Recommendations 8
Foreword 10
Background 11
Acknowledgements 13
Strategic Alignment 14
PPE Project Objectives & Outcomes 15
Objective 1: Personal Risk in Surf Sports Activities ...................................................................................................................... 15
Objective 2: Trial and Testing of PPE ............................................................................................................................................ 16
Objective 3: Identification of Suitable PPE ................................................................................................................................... 17
Fit for Purpose Criteria: Lifejackets......................................................................................................................................... 17
Fit for Purpose Criteria: Surf Helmets ..................................................................................................................................... 17
High Visibility Colour ............................................................................................................................................................... 18
Australian, European and International Standards ................................................................................................................ 18
SLSA Technical Specification for Level 25 Lifejackets ............................................................................................................. 18
SLSA Technical Specification for Surf Helmets ........................................................................................................................ 19
Objective 4: Recommendation for Use of Suitable PPE ............................................................................................................... 20
Effectiveness of Control .......................................................................................................................................................... 20
Reasonable Scope of Use ........................................................................................................................................................ 20
Safety Policies Review ............................................................................................................................................................ 21
Definition of Heightened Risk ................................................................................................................................................. 21
Discipline Specific Designs ...................................................................................................................................................... 22
Market Led Innovation ........................................................................................................................................................... 22
Policy Development 23
Consultation ................................................................................................................................................................................. 23
Key Issues in Policy Development ................................................................................................................................................ 23
Rules for Multidisciplinary Events .......................................................................................................................................... 23
Surfboard and Longboard Competition .................................................................................................................................. 24
Risk Profiles ............................................................................................................................................................................. 24
Definition of Heightened Risk ................................................................................................................................................. 24
Simplicity of Risk Assessment ................................................................................................................................................. 25
Supply of Devices .................................................................................................................................................................... 25
Prioritising Effective Controls ................................................................................................................................................. 25
Formal and Informal Training ................................................................................................................................................. 25
Junior Development (5-13 years) ........................................................................................................................................... 25
Maritime Safety Regulations .................................................................................................................................................. 26
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Policies 27
Assumptions ................................................................................................................................................................................. 27
Recommended PPE Policies ......................................................................................................................................................... 27
Assumptions to Implement Recommended Policies 28
Fit for Purpose PPE ................................................................................................................................................................. 28
Defined Thresholds for Heightened Risk ................................................................................................................................ 28
Risk Assessment Procedures, Tools and Education ................................................................................................................ 28
Financial Impact of Proposed Policies 29
Implementation Plan 30
Whole of Sport Approach ............................................................................................................................................................. 30
Communications Plan 31
Board Decisions ............................................................................................................................................................................ 31
Project Progress ........................................................................................................................................................................... 31
Targeted Cultural Change Activities ............................................................................................................................................. 31
Monitoring and Evaluation 32
Monash University Review Project .............................................................................................................................................. 32
Review Cycle ................................................................................................................................................................................. 32
Further Research 33
Junior Development (5-13 years) ................................................................................................................................................. 33
Lifesaving Operations ................................................................................................................................................................... 33
Specialist Operations .................................................................................................................................................................... 33
Appendix 1: UNSW Surf Sport Injury Report
Appendix 2: JCU Testing of Buoyancy Aids and Surf Helmets
Appendix 3: JCU Testing of <Level 50 Buoyancy Aids
Appendix 4: JCU Testing of Level 25 Buoyancy Aids
Appendix 5: SLSA Technical Specification – Surf Helmets
Appendix 6: SLSA Technical Specification – Level 25 Lifejackets
Appendix 7: Personal Protective Equipment Survey
Appendix 8: Surf Hazard Rating and Surf Helmets 2013/14
Appendix 9: Surf Hazard Rating and Surf Helmets 2014/15
References

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Executive Summary
1. Surf Life Saving Australia (SLSA) has conducted this project to identify and develop suitable and fit for purpose
Personal Protective Equipment (PPE) solutions that minimise risk to SLS members health and safety when they are
participating in core SLS activities.

2. An independent assessment of surf sport related injury in Australia conducted by the University of New South Wales
is attached (Appendix 1).

3. The primary risk aiming to be mitigated via the employment of PPE is the catastrophic risk of drowning following
incapacitation via a range of root causes and mechanisms.

Background

4. The PPE project commenced following the tragic death of Saxon Bird at the 2010 Australian Championships in
Queensland. The subsequent Coroner’s findings recommended:

“..that SLSA collaborate with the designers of such devices (floatation vests) with a view to making the wearing of
them compulsory once the organisation is satisfied they are suitable. Consideration should also be given to the use of
helmets by competitors in surf craft events”, QLD State Coroner Barnes (August 2011)

The SLSA PPE Project represents the organisations response to this recommendation.

5. SLSA have considered the use of PPE in a holistic risk management framework. A great deal of other risk control
measures beyond the scope of this project has occurred that reduce risks to members. The use of PPE is
recommended to further minimise the residual risks that exist following the implementation of these controls. This
approach recognises that PPE is the least effective, though still important, component of the hierarchy of controls
for risk mitigation.

6. When selecting and considering the use of PPE for use, SLSA are required by Safe Work Australia to:
 Conduct a detailed evaluation of the risk and performance requirements for the PPE
 Assess the compatibility of PPE items where more than one type of PPE is required
 Consult with suppliers to ensure the PPE is suitable for the work and workplace conditions
 Preference PPE that complies with the relevant Australian Standard or equivalent standard

7. Although other types of PPE and various devices were considered in initial stages of the project and their research
and development was monitored, the project has focused on the development of fit for purpose Lifejackets and Surf
Helmets as defined in Coroner Barnes’ recommendation.

Process

8. The process undertaken by SLSA to satisfy the requirements and deliver technical specifications for fit for purpose
PPE has been conducted with broad consultation of the membership and industry through various mechanisms
including online and face to face surveys, laboratory testing, field testing, stakeholder workshops, working group
and committee meetings.

9. Key milestones were achieved through this process that answered several key research questions necessary to
inform the development of fit for purpose Technical Specifications. These milestones included:
a) Defining the risk and performance requirements (fit for purpose criteria) for both lifejackets and surf helmets.
b) Identifying that Level 50 Lifejackets were not suitable for use in the surf zone particularly on non-powered craft.
(Appendix 2)
c) Identifying the minimum buoyancy requirements for low buoyancy lifejackets. (Appendix 3)
d) Developing and testing a draft Australian Standard for Level 25 (low buoyancy) Lifejackets. (Appendix 4)
e) Delivering and testing a draft Technical Specification for Surf Helmets. (Appendix 5)
f) Delivering and testing a draft Technical Specification for Level 25 Lifejackets. (Appendix 6)

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Consultation

10. SLSA have undertaken consultation with membership and key decision makers to inform the development of the
final policy recommendations. This consultation has included an online member survey open to all members of the
movement over 18 years of age conducted by Ballarat University (Appendix 7), face to face surveys conducted by
James Cook University (Appendix 4), meetings and workshops with member representative organisations, working
groups and committees as well as informal consultation through regular interaction with members.

11. The key outcomes of consultation with members that specifically inform the development of appropriate policies
include:
a) Ballarat University found on surveying 2,552 members that the concept of compulsory surf helmet and
i
lifejacket wearing was generally acceptable to the membership :
I. 76.1% said they would regularly wear a lifejacket if it was compulsory (n=1,182)
II. 73.5% said they would regularly wear a surf helmet if it was compulsory (n=1,593)
b) There is broad resistance to the wearing of PPE during low risk surf conditions
c) Only 14% of the 158 members surveyed by James Cook University disagree or strongly disagree with the
ii
mandated wearing of PPE during conditions of heightened risk
d) James Cook University noted that anecdotally the vast majority of members surveyed would comply with
mandatory PPE wearing policies under conditions of heightened risk in lieu of leaving the sport.
e) The effectiveness of each control (lifejackets & surf helmets) should be considered in policy development
f) There is greater resistance to the wearing of both a lifejacket and surf helmet together during conditions that
participants cannot generally accept that suitably high risk conditions are prevailing

Effectiveness of Controls

12. It is recognised that that the Level 25 Lifejacket provides a more effective control against the risk of drowning
compared to surf helmets. This assessment notes that surf helmets provide limited effectiveness against concussion
and ensuing reliance on a lifejacket to retain the person on the water’s surface to support an efficient recovery. It is
also recognised that the lifejacket provides additional protection for the wearer regardless of the mechanism that
renders them unconscious.

Surf Hazard Rating System

13. During the 2014/15 season, the SLSA Board’s initial PPE Policies regarding the wearing of approved Surf Helmets in
Surfboat activities under conditions of heightened risk came into effect. Consultation with membership and the
Australian Surfboat Rowers League (ASRL) has underpinned the broad success of this policy based on the use of the
Bond University developed Surfboat Hazard Rating System (SHR System). The 2013/14 phase final report is attached
(Appendix 8).

14. The SHR System research project and component conditions assessment tool has informed the setting of evidence-
based thresholds where the wearing of helmets becomes mandated, and development of an acceptable procedure
for assessment of prevailing surf conditions to inform decision makers. This process has been supported by the ASRL
membership and provides a template for the development of appropriate and acceptable thresholds for the use of
PPE across other disciplines. It is highly recommended that work to develop risk assessment tools and identify
appropriate thresholds for the wearing of PPE is undertaken prior to the introduction of any further mandatory wear
policies. The 2014/15 phase final report is attached (Appendix 9).

Surf Helmet and Level 25 Lifejackets

15. The final Technical Specifications for both Surf Helmets (Appendix 5) and Level 25 Lifejackets (Appendix 6) deliver
products that comply with the risk and performance requirements identified by SLSA for use in surf life saving
activities. These are presented for endorsement pending the publication of their associated Australian Standards.

16. Consultation and field testing highlighted that board paddlers held concerns with the designs of available and
approved surf helmets adversely impacting comfort on their neck position while conducting the required
biomechanical movements of the skill set. Further research and development is necessary to ensure that designs of
surf helmets for board paddlers are acceptable for this user group.

17. Consideration was also given to the preferred colours for both high-visibility vests. The SLSA Water Safety Policy and
Procedure currently allow for the wearing of rash vests in any conspicuous colours the dominant colour used has
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become pink. Consultation with stakeholders through the PPE Project has identified a desire by some to ensure that
the colour choice employed in policies considers the most visible colour to be seen underwater. Currently the
policies are focused on visibility above the water. There are sound reasons for multiple colours needing to be worn
while undertaking different SLSA activities and to support the smooth running of these activities. For example, water
safety, lifesavers, lifeguards, judges, and participants in different age groups or disciplines may wear different
colours. It may also be a requirement for judging. It is recommended that the current high-visibility rash shirt
policies allowing the use of a range of colours within the defined spectrum be retained considering the practical
benefits of this position.

18. Aside from surf helmets in board activities, no other undesirable or significant barriers to the use of surf helmets
and/or lifejackets were noted across other craft disciplines (surfboat, surf ski, IRB) though different conditions
thresholds for their use may be required to garner acceptable use and support from the membership.

19. The project team and SLS management have also been requested by the SLSA Board to provide recommendations
on how these devices could reasonably be incorporated into SLSA policies and procedures to minimise risks to
members as low as reasonably practicable. This process recognises the cultural and personal appetite of individuals
to reasonably accept the use of these devices while supporting and promoting the achievement of key objectives.

Policy Development

20. It is reasonable to recommend that policies regarding the wearing of level 25 lifejackets and surf helmets be
mandated in craft activities under conditions of heightened risk, noting the further consideration required for surf
helmets in board activities.

21. In order to implement policies mandating the wearing of level 25 lifejackets and surf helmets under conditions of
heightened risk, it is necessary to consider the following issues that affect timelines and implementation plans:
 Timelines to finalise and publish the revised Australian Standard AS4758
 Procedural timelines to certify and accredit new devices
 Providing reasonable notice to membership
 Manufacturing, shipping and distribution limitations
 Definition of appropriate thresholds for wearing of PPE
 Development of risk assessment tools and associated education requirements
 Financial impact
 Communications
 Cultural resistance
Consideration of these aspects has led SLSA management to recommend a phased approach over 3 years.

22. The following table outlines the key objectives in each year of a recommended 3 year implementation plan:

Year 2015/16 Season 2016/17 Season 2017/18 Season
1. Define thresholds for heightened risk 1. Mandate the wearing of 1. Mandate the wearing of Surf
2. Enhance the SHR System for craft Level 25 Lifejackets for Helmets for defined craft
activities defined craft activities activities beyond defined
3. Develop tools and training systems beyond defined heightened heightened risk thresholds
Key
for SHR system risk thresholds 2. Highly recommend use of
Objectives
4. Highly recommend use of PPE where 2. Highly recommend use of PPE
available PPE where available
5. Communicate the policies and key
concepts to aid implementation

23. It is a reasonable assumption that lifejackets and surf helmets will be purchased by individuals who wish to
participate in surf sport activities. In some cases where resources are available, organisations may choose to
purchase this equipment on behalf of their participants. A conservative financial assessment of the implementation
of lifejackets and surf helmet policies across all disciplines indicated that the total cost of these policies is
approximately $1.934m AUD.

Cultural Change and Communications

24. It is recognised that this is a significant cultural change for the movement, and appropriate activities should be
undertaken to not only communicate the policy positions and promote understanding of the PPE itself, but should
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also aim to promote positive perceptions of the devices in order to minimise resistance to their use. Ideally,
promoting the benefits that are provided to the individual through their use and demonstrating their minimal
impact on performance. The organisation will give due consideration to this aspect in the development of a detailed
communications and implementation plan following the confirmation of policies.

Monitoring and Evaluation

25. It is essential that a monitoring and evaluation program be developed to inform continuous improvement processes,
and that this information is considered by an appropriately skilled committee to develop any necessary changes.
Monash University have been engaged to conduct this process during the 2014-15 season in assessing the impact of
surf helmet policies in surfboat and IRB activities, as well as level 50 lifejackets in IRB competition and operations.
Their final report will be due to SLSA in August 2015 following the completion of the IRB Competition Season. Should
their report be acceptable to SLSA it is recommended that they are engaged for ongoing monitoring and evaluation
of safety policies for the duration of the implementation plan.

Assumptions
26. It is assumed that the following key activities will be completed according to schedule in order to implement the
recommendations as defined of this report:

st
a. Publication of the revised Australian Standard AS4758 Lifejackets by 1 August 2016.
b. Research and consultation is undertaken to define appropriate and evidence based thresholds for heightened
st
risk with recommendations provided to the Board prior to 1 May 2016.
c. Further testing of the Level 25 Lifejackets are conducted under conditions of heightened risk in consultation
with athletes.
st
d. A suitable supply of approved lifejackets are available to the membership from 1 April 2016.
e. Risk assessment procedures, tools and education requirements are developed and trialled over the 2015/16
season to assist determination of heightened risk.

Summary of Recommendations
Based on the assessment of available evidence, consultation with members and key stakeholders, information contained in
the final PPE Project Report for Surf Sports, and the consideration of SLSA Management the following recommendations are
provided to the SLSA Board:

1. That the wearing of SLSA approved Level 25 Lifejackets is mandated in surfboat, surf ski, and board competition
during periods of heightened risk as determined through a recognised risk assessment.
a) The risk assessment process and precise heightened risk threshold is to be determined through a research
project and consultation with stakeholders during the 2015/16 season.
st
b) That the policy be introduced for all specified disciplines from 1 October 2016.

Note: Junior Development Activities are not included in this recommendation - refer to Recommendation 9 noting
further research.

2. That the wearing of SLSA approved Surf Helmets is mandated in surf ski and IRB competition during periods of
heightened risk as determined through a recognised risk assessment.

a) The risk assessment process and precise heightened risk threshold is to be determined through a research
project and consultation with stakeholders during the 2015/16 season.
st
b) That the policy be introduced for IRB disciplines from 1 October 2015.
st
c) That the policy be introduced for surf ski disciplines from 1 October 2017.

Note: Surfboats have already adopted mandatory wear policies for surf helmets.

3. That the wearing of Surf Helmets and Level 25 Lifejackets is recommended in both formal and informal craft training
sessions (surfboat, surf ski and board) and incorporated into the SLSA Water Safety Policy.

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4. That SLSA amend all necessary policies, rules and guidelines to accommodate the introduction of PPE including the
development of a unified SLSA Policy on PPE to consolidate changes currently established via Circulars and Bulletins.

5. Endorse SAI Global as SLSA’s agent to manage the accreditation and compliance process for proposed Surf Helmets
and Level 25 Lifejackets utilising the relevant SLSA Technical Specification, Australian Standard and European
Standards to inform certification procedures.
6. Endorse the SLSA Technical Specification for Surf Helmets.
7. Endorse the SLSA Technical Specification for Level 25 Lifejackets pending publication of the revised Australian
Standard for Lifejackets AS4758:1-3 (2015).

8. Engage Monash University to continue its monitoring and evaluation program for safety policies implemented in
surf sports activities to inform continuous improvement processes overseen by an Operational Risk Working Group
PENDING delivery of an acceptable report for their 2014/15 project.

9. That SLSA conduct further consultation and research be conducted to investigate the use of PPE in lifesaving
operations and junior development activities.

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Foreword

Our first lifesavers recognised the need for a service to safeguard theb athing public, and often placed themselves in
dangerous situations in order to retrieve those in peril. Today, our lifesavers are still taking risks every day in order to save
lives in operational duties, during training to develop their skills, and while participating in recreational sporting activities .
We operate in a dynamic and hazardous environment. It is part of our heritage and our purpose. This same hazard is the very
reason for our organisations existence. We have always embraced and managed the risks associated with the surf .
We take calculated risks in order to achieve both individual and organisational objectives to save lives, create great
Australians and build stronger communities.
We were founded as risk management based organisation. We will always be a risk management organisation .
As the organisation continues to evolve and innovate, we are constantly seeking new means to improve member and
community safety while supporting the achievement of our objectives.
The tragic deaths of Robert Gatenby, Saxon Bird and Matthew Barclay during surf sport competition events have been a
catalyst for the latest round of innovation into personal protective equipment that is fifto r purpose for use in the surf zone.
Any loss of life or serious injuryo f a lifesaver or member is unacceptable.
The loss of a member results in catastrophic impacts for their family and friends, but also their community, club, state and
the national Surf Life Saving movement that has been united in grief far too often over recent years.
These events have triggered a safety revolution for surf life saving. They provided a profound opportunity for reflection of
our organisational risk appetite, and a sense of urgency to deliver innovative solutions to minimise risk.
Safety is paramount. This statement provides renewed focus on a foundation principal of our organisation.
The Personal Protective Equipment (PPE) Project was established with the aim of developing fit for purpose solutions to
reduce risks posed to our members in often challenging conditions. This process has not been easy, nor has it been fast, but it
has been effective.
The new Level 25 Lifejackets and Surf Helmets described in this Final Report provide opportunities for the membership. They
provide further assurances for members to confidently participate in challenging surf conditions while managing the risks
involved to a level as low as reasonably practicable.
We recognise that our members savour the challenge of the ocean, but we must manage these risks wisely and responsibly.
The recommendations to introduce these devices into surf sport activities are a first step to introducing these pioneering
devices in surf life saving activities where the risks involved are intolerable. While consideration for their use in other
activities such as operational lifesaving is ongoing, our commitment to ensuring safety is paramount across all surf life saving
activities is unwavering.
This report represents an end to the beginning of our latest safety journey. Surf Life Saving Australia will continue to innovate
and develop new approaches to lifesaving to realise our objective of zero drownings in the Australian community, with
utmost importance placed on the safety of our lifesavers that have so often in our history placed the lives of other before
their own.
I commend this report to you and thank the members, staff and stakeholders who have contributed to the SLSA PPE Project
over many years.

Sincerely,

Anthony Bradstreet
PPE Project Manager
Coastal Risk & Safety Manager
Surf Life Saving Australia

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