Defence Occupational Health and Safety Strategy 2007-1 - Comcare

CONTENTSDefence OHS Vision . . . . . . . . . . . . . . . . 2Foundation Objectives . . . . . . . . . . . . 8Operational Objectives . . . . . . . . . . . 10Enabling Objectives . . . . . . . . . . . . . . 13Message from the DOHSC Chairman . . 3> OHS Strategic Objective 1 . . . . . . . . 8> OHS Strategic Objective 3 . . . . . . . 10> OHS Strategic Objective 6 . . . . . . . 13Governance . . . . . . . . . . . . . . . . . . . . . . 4> OHS Strategic Objective 2 . . . . . . . . 9> OHS Strategic Objective 4 . . . . . . . 11> OHS Strategic Objective 7 . . . . . . . 14The Changing Defence Environment . . . 5> OHS Strategic Objective 5 . . . . . . . 12> OHS Strategic Objective 8 . . . . . . . 15Present and Emerging Issues . . . . . . . . 6Defence OHS Strategic Objectives . . . . 7Copies of the Defence OHS Strategy andsupporting documentation are availablevia the Defence OHS Portalhttp://ohsc.defence.gov.au/OHSMS/Comment and feedback is welcome viaohsc@defence.gov.auDefence Intranet ohsc.defence.gov.auInternet www.defence.gov.au/dpe/ohsc

DEFENCEOHS VISION‘Through leadership and individual commitment, Defence willcontinue to place a high priority on the occupational health andsafety (OHS) of its people, thus protecting them and enhancingcapability and readiness. We aim to eliminate all preventablework-related injuries and illness through the systematic managementof our risks. We will strive to make measurable improvement inour occupational health and safety performance through theimplementation of the Defence OHS Strategy.’ACM Angus Houston, AO, AFCChief of the Defence ForceNick Warner, PSMSecretary

MESSAGE FROM THE DOHSC CHAIRMANThe Defence OHS Strategy defi nes the strategicobjectives that are required to achieve our desiredOHS culture and deliver a high standard of OHSperformance. It articulates our OHS policy andexpected outcomes.The Defence OHS Strategic Plan 2004-2006 identifi ed three phases to achieve OHSimprovement in Defence: Reposition, Reshapeand Realise. The primary objective of thisDefence OHS Strategy will be to reshape DefenceOHS management and realise performanceimprovements. The foundation of this work isdeveloping and implementing the elements of theDefence OHS Management System (OHSMS), acritical element of which is the OHS ManagementInformation System (OHSMIS).The Defence OHSMS provides a planned,documented and quantifi able approach for thecomprehensive and systematic managementof OHS. Our OHSMS encompasses the areasof leadership, incident prevention, incidentmanagement, and supporting managementarrangements. It provides the architecture toembed a repeatable way of managing OHS thatincludes the integration of deliberate practices,processes and linkages, while remainingsuffi ciently fl exible and responsive to meetchanging demands.We seek to move beyond a simple focus onlegislative compliance and evolve into a valuesbased,learning organisation. Thus, proactivelymanaging all workplace hazards to protect ourpeople across the spectrum of activities we areengaged in including deployments, operationsand working at Defence facilities. Our Defencevalues guide the behaviour of our people, atevery level of the organisation, and will underpinour desired OHS culture. We will have achievedour desired OHS culture when:>>>>>>OHS is recognised as a force multiplier byits inherent link to force preservation andsustainability of operations, and is embeddedin all capability development, acquisition,contracting, design, operational planning,operations and business activities.OHS roles and responsibilities at all levelsare clear and understood, supported bydemonstrated leadership commitment andintegrated into people management systems.Accurate OHS information is captured anddisseminated in an effective and timely mannerthrough integrated systems and is used indecision making.All personnel accept responsibility for theiroccupational health and safety, and that ofothers in the workplace, and regard it as anintegral part of the daily working routine.Innovative, healthy and safe work practicesare supported through appropriate rewardand recognition.Emphasis is given to identifying root causesof incidents, taking preventive action, andensuring lessons are learned.>All Defence personnel, Australian DefenceForce Cadets and Contractors apply valuebased decisions that contribute to a Defencewide safe and healthy work environment.Implementation of the Defence OHS Strategywill take place at two levels: the corporate leveland the individual Service and Group level. At thecorporate level, the objective will continue to be theachievement of Strategic Objectives that requirea coordinated approach across the Services andGroups. At Service and Group level, the objectivewill be on implementing arrangements to meet theindividual organisations’ needs while supportingcorporate OHS improvement initiatives.As Chair of the DOHSC, I will supportimplementation of this Strategy by:>>>>coordinating the development and maintenanceof the Defence OHSMS to achieve effectiveimplementation within individual Services andGroups;ensuring the OHSMS supports joint andinteragency operations;aiding the Services and Groups to translatecorporate improvement initiatives into actionsthat effectively meet their individual OHSmanagement requirements;assisting the Services to develop approachesfor managing OHS in joint operationalenvironments;>>>>working collaboratively with the Servicesand Groups to identify and address commonOHS management issues;guiding development of policy and practicesfor OHS hazard and risk management that areunderstandable and effective;ensuring, as chair of the DOHSC, thatproposals for improved OHS managementare appropriately considered and funded; andcoordinating corporate level OHS initiatives,concentrating on the highest priorityimprovements that can be achievedwithin available resources.Allocation of resources to meet the priorities of thisStrategy will be addressed through Service andGroup budget estimates processes, the DefenceManagement and Finance Plan, the DefenceWorkforce Plan and, in respect of corporateinitiatives, funding from DOHSC. In developing ourOHS capability we also need to recruit and developOHS professionals, specialists and representativesto play key roles in OHS management.Major General Mick Slater, DSC, AM, CSCChairman,Defence Occupational Healthand Safety Committee4

GOVERNANCEThe Defence OHS Strategy is consistent withDefence’s existing governance arrangements.These arrangements are refl ected in the MinisterialDirective to the Secretary and CDF and cascadedown to the Service Chiefs and Group Headsthrough Charter Letters and OrganisationalPerformance Agreements. Customer ServiceAgreements provide the mechanism fordocumenting inter-Service/Group arrangements,and provide the accountability framework fordirecting and controlling performance in Defence.OHS is integral to delivering capability and isimplicit within these governance arrangements.The Defence Committee’s (DC) role is to makedecisions aimed at achieving the outcomesspecifi ed in the Ministerial Directive to the CDF andSecretary. The DC focuses on the longer term,giving direction and assessing performance indelivering results.The Defence Occupational Health and SafetyCommittee (DOHSC) is a DC sub-committeeresponsible for oversighting the Defence OHSStrategy and supporting activities. The Chair ofthe DOHSC is responsible and accountable tothe Secretary and CDF, the designated employersunder the Occupational Health and SafetyAct 1991. The DOHSC reports to the DC onsignifi cant OHS issues and annual progress withimplementing the Defence OHS Strategy.The Chair of the DOHSC is also the principal OHSpolicy adviser to the DC and is responsible forproviding a corporate OHS policy and governanceframework.Service Chiefs and Group Heads are responsiblefor the OHS performance of their respectiveorganisations and reporting to the DOHSC.OHS performance to meet statutory reportingrequirements, including the Defence AnnualReport, is coordinated through the OccupationalHealth, Safety and Compensation Branch.5

THE CHANGINGDEFENCE ENVIRONMENT:IMPLICATIONS FOR THEMANAGEMENT OF OHSThe primary role of Defence is to provide Governmentwith military options for the conduct of operationsto defend Australia and its national interests. Thisresponsibility, together with the demanding andcomplex nature of the Defence environment, givesrise to challenges in meeting our obligation to makeDefence a safe workplace for our people.First, there is the challenge created by the size andgeographic spread of the Defence workforce. TheDefence workforce is made up of over 100,000personnel, comprised of:>>permanent and reserve force members ofthe Navy, Army and Air Force, together withthe cadets from each of the Services;civilianemployees engaged in an ongoing or nonongoing(temporary) capacity under the PublicService Act 1999; andprivate sector contractors working throughout,and frequently embedded within, the Defenceworkforce.In addition to working throughout Australia, frommajor metropolitan and rural centres to remotelocalities, our people are deployed on operationsoverseas, and work in overseas missions,embassies and posts throughout the world.There is vast diversity in the nature of workperformed by Defence personnel. Militarypersonnel are engaged in ‘warlike’, ‘nonwarlike’and ‘peacetime’ operations, includingpeacekeeping and humanitarian relief operations,as well as training for such operations. Whileinitial operational training is conducted underthe auspices of the individual Services, we areincreasingly mounting joint ADF operations andfrequently in coalition with overseas military forces.Support activities performed across Defence byboth military and civilian personnel encompassan extensive range of functions and employmentcategories, including scientifi c, engineering, technical,logistical and administrative support together withpolicy development and planning. It is fair to saythat Defence has a greater range of employmentcategories than any other Australian employer.Overriding all of this, are the risks - in some cases,extreme risks - associated with the nature ofmilitary service. The principal distinguishing featureof military service is, of course, the obligation toserve in combat operations. No other employmentgroup has the same liability. Increased operationaltempo as a result of participation in peacekeepingand overseas coalition operations has highlightedthis obligation and the inherent risks involved indeployed operations.Despite our desire and best efforts to do so, therisks inherent in military service can never becompletely removed. Other than the obvious risksassociated with operational service, ADF trainingactivities are aimed at exercising military skills insimulated combat situations, which by necessityleads to elevated risk environments, albeit wherethe risks are controlled to the maximum extentpracticable. Moreover, many military activitiesrequire personnel to work long and irregular hoursof duty in adverse or arduous conditions, thuscompounding the risks.Within this large and diverse employmentenvironment the ability to sustain our mostimportant asset - Our People - is paramount.Accordingly OHS becomes a capability enhancerof crucial importance to all personnel. In addition,and notwithstanding the unique nature of militaryservice, Defence is not immune from complyingwith the OHS Act and related legislation. While thedemands made of Defence and its personnel mayat times be higher than for the rest of the Australianworkforce, the standards relating to OHS remainthe same as for the wider community.6

PRESENT ANDEMERGING ISSUESAgainst this background, it is considered that inthe short to medium term the following issues willhave implications for the management of OHSwithin Defence:>>The expectations of those entering, oralready working in Defence, together withthe expectations of Government and widercommunity, are likely to increase insofar as theeffective management of OHS is concerned.This can be expected to have a direct bearing onDefence’s reputation and, therefore, our ability toattract, recruit and retain quality people.It is likely that further legislation relating eitherdirectly or indirectly to OHS will be enactedover time, and that Defence will be subject toincreasing regulation and external scrutiny.>>Operational tempo is unlikely to diminish,and may increase, in response to changesin the international security environment orthe Government’s strategic Defence policy.The instability being experienced within ourown region may increase, potentially leadingto further regional deployments. Increasedoperational activity invariably leads toheightened OHS risks for our people.Pressures within the Australian labour market,combined with substantial demographic shifts,will continue to constrain Defence’s capacity toattract high quality recruits to the ADF and thecivilian workforce.>>The large-scale acquisition of new platformsand equipment, coupled with the potentialfor signifi cant new occupational hazardsassociated with emerging technologies, can beexpected to generate new OHS challenges.High operational tempo along witha constant drive to achieve greaterproductivity and improved performanceacross the Defence workforce may leadto increased psychological injuries.The preceding factors suggest increasingdemands will be made in relation to themanagement of OHS, a prediction consistentwith the growing importance of OHS over the lasttwo decades. These factors indicate Defence willface continuing pressure to reduce the frequencyand severity of work related injuries and illnessesamong Defence personnel in order to maintain ourexisting levels of capability while containing costs.7

DEFENCE OHSSTRATEGICOBJECTIVESThe fi rst, or ‘Reposition’ edition of the Defence OHS StrategicPlan 2004-2006 established 8 priority areas for action, broadlygrouped into outcome priorities and enabling priorities. Wehave made progress during the ‘Reposition’ phase of the‘Strategic Plan’, agreeing the Defence OHSMS as theenterprise-level architecture for managing OHS anddefi ning roles and responsibilities. As we transitionto the ‘Reshaping’ phase, a review of the prioritiescontained in the Defence OHS Strategic Plan2004-2006 reveals that the initial thinking wassound. The original 8 Priorities have beenrecast as Strategic Objectives and prioritisedto better focus our efforts.Foundation Objectives1. Further develop and implement the elementsof the Defence-wide OHSMS.2. Develop and implement a Defence OHSManagement Information System to improvethe quality of OHS information available todecision-makers at all levels.Outcome Objectives3. Reduce the frequency and severityof risks to people’s health and safety.4. Improve prevention of occupationalinjury, illness and disease.5. Reduce the impact of occupationalinjury, illness and disease.Enabling Objectives6. Train, support and motivate personnel toidentify and manage hazards effectively.7. Improve and embed a systematic capabilityto identify, eliminate or manage hazards inthe design and planning stages of Defenceactivities.8. Enable Defence personnel to manage the OHSperformance of third parties, consistent withDefence policies and practices.The Defence Strategic Objectives are explained ingreater detail in the following pages.8

FOUNDATIONOBJECTIVESSTRATEGIC OBJECTIVE 1:Strategic Objectives 1 and 2 are called Foundation Objectives as it has been decided that:> The OHSMS (Strategic Objective 1) is the underlying basis for all > To enable commanders and managers to be effective in their planning,implementation activity at the corporate level. While establishing minimum leadership and decision-making they must have access to timely andstandards and common outcomes, it will allow practices to be tailoredaccurate information. Provision of an enterprise-based managementto Service and Groups specifi c requirements. The development of ainformation system (Strategic Objective 2) to support decision-makers issystematic OHS capability, which is integrated with related Defencetherefore the second foundation objective.management frameworks and based on a risk management approach,provides a foundation on which to improve our OHS performance.Further develop and implement theelements of the Defence-wide OHSMSThe ability of Defence to sustain improvementsin OHS performance is dependent on developingan effective OHSMS, and supportive culture.External research reveals that best practiceorganisations adopt a consistent, systematicapproach to managing OHS, focusing onoccupational health promotion and hazardelimination as the underlying purpose of OHSsystems. Further, it indicates that a positiveOHS culture (the acceptance of OHS as a coreorganisational value in the minds of leaders, staffand contractors) is required in support of a robustOHS management system if enduring performanceimprovement is to be achieved.The Defence OHSMS purpose is to create asustainable capability through a comprehensiveand integrated architecture where the Services andGroups can manage the risks arising from Defenceactivities. It must also enable risks to be managedeffectively across organisational boundaries.The Key Strategies for Objective 1 are:>>The Defence OHSMS will have principlesbasedpolicies and implementation plans thatare adaptable to the needs of the Servicesand Groups -so that their individual OHSmanagement system can be confi gured tosupport integration with the Defence OHSMS.Gaps between current practice andOHSMS requirements will be identifi ed andimplementation plans developed for eachService and Group, and Defence as a whole.> The mechanisms to drive cultural change,including the role of education and training,communications, recognition and reward,will be determined and appropriate actionsincorporated into implementation plans.9

STRATEGIC OBJECTIVE 2:Develop and implement a Defence OHSManagement Information System to improvethe quality of OHS information available todecision-makers at all levelsCommanders and Managers require accurate andtimely OHS information to manage and report OHSperformance effectively, ensure compliance withstatutory requirements and apply their resourcesfor maximum effect. The ability to initiate timelyinterventions depends on receiving information onrelevant lead indicators of performance.Defence must improve its capacity to detectrecurring incidents and learn from experience.Methods that enable the sharing of information,lessons learned and technical OHS knowledgeacross Services and Groups will be developed.Strategic Objective 2 is intended to improvethe quality, timeliness and accessibility ofOHS information.The Key Strategies for Objective 2 are:>>An enterprise-level OHS ManagementInformation System (OHSMIS), based on theDefence OHSMS, will be designed, developedand implemented. It will provide Defencewide performance information allowing trendanalysis within the Services and Groups, andaggregation for whole-of-Defence performanceanalysis and reporting.OHS performance targets will be determined,within the Services and Groups and across thewhole-of-Defence, where they perform a usefulpurpose in driving improvement.10

OPERATIONALOBJECTIVESStrategic Objectives 3, 4 & 5emphasise how Defence can managethe OHS impacts of our activities andtheir effect on people.STRATEGIC OBJECTIVE 3:Reduce the frequency and severityof risks to people’s health and safetyAt the whole-of-Defence level more effectivemechanisms to systematically identify and manageour most signifi cant hazards are needed. TheNational OHS Strategy 2002-2012, togetherwith Defence Boards of Inquiry and Comcareinvestigations, highlight specifi c sources of risk thatrequire further attention, including organisationalrisks that may lead to systemic failures.Strategic Objective 3 is focused on improving theidentifi cation and management of those DefenceOHS risks requiring urgent attention.The Key Strategies for Objective 3 are:>>>Develop a corporate risk management registerencompassing hazard types, areas affectedand likely impacts, in order to drive hazardmanagement activity.Review key sources of information to identifythose risks most requiring attention, and developand implement appropriate action plans.Develop an organisational incident model thatallows analysis of selected incidents, with fi ndingsinfl uencing broader OHS improvement efforts.>>>Review OHS risks in the joint operationalenvironment and develop processes to managethese effectively.Examine OHS risk management at multitenantedsites, consider the infl uence ofcommand and control structures, and developprocesses to manage risks that cross Serviceand Group boundaries.Identify OHS specialists to provide the DOHSC,commanders and managers with expert adviceto inform decision-making.11

STRATEGIC OBJECTIVE 4:Improve prevention of occupationalinjury, illness and diseasePoor work practices or inadequate riskappreciation often lead to physical injury witha resultant absence from the workplace andreduction in personnel capability. This includes inparticular Defence personnel undertaking trainingactivities. It may also include personnel workingin offi ce-based environments and workshops,despite these generally being viewed as benign orlow risk environments.Exposure to hazards such as chemicals andradiation may lead to non-specifi c symptoms,long latency or insidious occupational illnessesand diseases. Further, medical and other healthprofessionals require appropriate occupationalmedicine competencies and workplace healthknowledge. These are not routinely providedas part of health qualifi cation training, resultingin a poor understanding of likely and reportedoccupational exposures and the use ofinappropriate health surveillance. In the absenceof appropriate health surveillance programs, theseimpacts may be diffi cult to detect and treat in atimely manner.In the deployed context, commanders must ensurethat troops are not unnecessarily exposed toenvironmental and industrial hazards.The Defence Centre for Occupational Healthensures that Defence adopts a strategic focus onpreventing occupational illness and disease whilealso managing the consequences to our people.The Key Strategies for Objective 4 are:>>>Systematically identify exposures tooccupational health hazards and eliminate orreduce the risks to an acceptable level.Establish Defence policy for the provision ofoccupational medicine and industrial hygienesupport, concentrating on high risk areasincluding deployed and industrial environments.Progressively implement appropriatehealth surveillance programs, includingrelevant biological and environmentalmonitoring of workplaces.>>>Implement programs to enhance physical andemotional wellbeing.Undertake continuing research to identifyemerging issues in occupational illness anddisease.Systematically identify the principle sourcesof occupational injury to Defence personnel,prioritise them and develop strategies toreduce the incidence of injury.12

STRATEGIC OBJECTIVE 5:Reduce the impact of occupationalinjury, illness and diseasePrevention is the primary objective of Defence’sapproach to OHS management. However, whenOHS incidents occur there can be signifi cantlong-term personnel, operational, fi nancial andreputation impacts which need to be managed.At any point in time, a signifi cant number of militarypersonnel are deemed unfi t for deployment asa result of injuries occurring during operationsor training. This ultimately impacts on militarycapability and compensation costs.Objective 5 recognises the occupational injury,illness and disease severity of impact can beminimised if the type, level and speed of responseis appropriate. Its focus is achieving the promptand safe return to duty of injured or ill personnel byensuring that appropriate treatment, rehabilitationand return-to-work processes are in place.The Key Strategies for Objective 5 are:>>>>Defence rehabilitation and compensationprocesses, together with clear and acceptedresponsibilities, will be fully embedded in humanresource management practices.Policies to manage ill or injured personnel willbe developed and implemented.The capability and fi nancial impacts ofoccupational injuries, illness and disease willbe reduced through implementation of targetedresponse strategies.Programs providing appropriate care andsupport to ill or injured personnel will bedeveloped and implemented.13

ENABLINGOBJECTIVESStrategic Objectives 6 - 8 focuson enabling Defence to deliverthe OHS outcome objectives:STRATEGIC OBJECTIVE 6:Train, support and motivate personnel toidentify and manage hazards effectivelyLeadership in OHS is critical to enable the effectiveimplementation of OHS improvements.Leaders must ensure that people are equippedwith the appropriate skills throughout their careersto effectively identify and manage workplace risks.They must encourage the prompt reporting ofhazards, particularly by junior personnel, who areoften the fi rst to be aware of them. Additionally,leaders must seek assurance that occupationalhazards in their organisations are being identifi edand managed.Objective 6 is focused on clarifying responsibilities,developing appropriate competencies, deliveringspecialist support, and providing assuranceto management for hazard identifi cation andmanagement.The Key Strategies for Objective 6 are:>>>>OHS roles and responsibilities are clarifi ed, andaligned with resources and accountabilities.Comprehensive OHS risk management policiesare established and applied.OHS leadership competencies are defi ned,and appropriate development, monitoring andmotivational strategies implemented to ensureleadership is an active component drivingbehavioural change.Relevant OHS education and training will beestablished and maintained, including:>>>>>induction procedures for supervisors in critical,hazardous and high risk areas;hazard identifi cation and management skills forleaders and managers; andoccupational medicine principles education isavailable to all medical offi cers providing healthcare at Defence establishments.Specialist Defence science and technologyexpertise is available and involved in hazardidentifi cation and management.Systematic OHS audits are conducted withinthe Services and Groups to ensure hazardidentifi cation and management processes andpractices are effective.14

STRATEGIC OBJECTIVE 7:Improve, consolidate and embed the capabilityto identify, eliminate and manage hazards inthe design and planning stagesA general principle of effective OHS managementis the source of risks are proactively identifi edand eliminated. This requires OHS aspects tobe considered early in capability development,acquisition, support and change managementprocesses to allow the elimination of potentialhazards. Consequently, OHS considerationsneed to be fully integrated into the capabilitydevelopment life cycle.The responsibility for identifying and eliminatinghazards extends beyond the design of equipmentand materiel to encompass the design ofwork processes and organisational change.Consequently, it falls on a wide range of partiesincluding policy makers, capability staff, engineers,designers, manufacturers, operators, contractors,suppliers and maintainers.Objective 7 focuses on the continuing requirementto improve safety in design.The Key Strategies for Objective 7 are:>>>Policies and processes will be developed andimplemented to ensure that OHS is adequatelyand consistently addressed in all Defencecapability and infrastructure acquisitions fromconception to disposal.Having identifi ed, assessed and eliminatedor controlled hazards during the design andacquisition phase this information will then beused throughout service life to ensure proactive,effective and informed hazard management.Processes in place to ensure refi ts andmodifi cations include reviews of OHS hazardsto identify and manage hazards, and whererequired action plans are developed.15

STRATEGIC OBJECTIVE 8:Enable Defence personnel to manage the OHSperformance of third parties, consistent withDefence policies and practices.Defence is increasingly reliant on third partiesfor the provision of goods and services, andas a result has potentially signifi cant attendantOHS risks to manage. Contractor activities canpose potential risks to a wide range of people,including Defence personnel, third party personnel,sub-contractors and the public. Within Defencecontrolled environments it is critical that wedevelop and implement OHS processes andperformance standards, for ourselves and thirdparties. There is also much that we can learn fromour commercial partners.Objective 7 seeks to develop practical approachesto enable the growth and management of safe andhealthy working practices in our relationships withthird parties. It will strengthen the OHS elementsof contracting arrangements to ensure Defence’sinfl uence on OHS outcomes is commensuratewith the risks involved. It seeks to ensure the moreexplicit consideration of OHS requirements duringtendering, negotiation and contract administration.The Key Strategies for Objective 8 are:>>>OHS performance standards and reviewmechanisms will be agreed and includedin all new Defence contracts.Procedures will be developed to ensureselection process includes a review of OHSperformance against Defence standards.Procedures will be implemented to ensurecontract administration includes periodic reviewof OHS performance against contract termsand Defence standards.16

Copies of the Defence OHS Strategy and supporting documentation are available via the Defence OHS Portalhttp://ohsc.defence.gov.au/OHSMS/Comment and feedback is welcome via ohsc@defence.gov.auThis document is printed on environmentally friendly paper.CRE8IVE 0907-7514