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HEALTH AND SAFETY IN GOLF COURSE MANAGEMENT AND MAINTENANCE - HSG79
First published 1994
ISBN 0717606899
Introduction
1
Most accidents on golf courses are associated with the use of agricultural machinery and pesticides. This guidance provides general information and advice for owners, managers and employees of golf courses about these areas.
2
The guidance describes the main risks found at golf courses and what should be done to safeguard the health and safety of employees and visitors. It will also be useful to golf club committees who have responsibilities, on behalf of the club, to employ staff and to maintain the course and buildings.
3
The guidance given in this note is not mandatory, but it does contain information on the health and safety responsibilities of those involved in the business. Employers may choose to take alternative effective steps if they wish.
4
The Health and Safety At Work etc Act 1974 and associated regulations will apply to golf course management and maintenance where there is a work activity and information on this is given in Appendix 1. For ease of reference, the law is set out in the order that it appears in the text.
5
Where British Standards are mentioned in the text, harmonised European Standards would also be appropriate.
MANAGEMENT OF HEALTH AND SAFETY
6
Health and safety within any workplace needs to be managed and controlled to ensure that good standards are maintained and, where necessary, improved. The effective management of health and safety is key in preventing accidents and ill health at work.
7
Competent management systems include:
[#9675] setting a clear health and safety policy which covers the selection of people, equipment and materials, the way the work is to be done and what is required to do it safely;
[#9675] assessing the risk of certain hazards and practices found in the workplace;
[#9675] ensuring that adequate preventative measures are in place to control certain hazardous conditions and procedures;
[#9675] training staff in safe working practices;
[#9675] monitoring and reviewing those working practices; and
[#9675] effective communication with all those involved in managing and maintaining the golf course.
RESPONSIBILITY OF THE CLUB
8
Golf clubs are normally managed by a committee or council supported by a number of sub-committees. As part of the management of health and safety, the committee would be responsible for ensuring that:
[#9675] employees and members are familiar with the club's safety policy and the arrangements to implement it;
[#9675] all employees are competent and trained and aware of the hazards in carrying out their duties;
[#9675] safety equipment and devices are properly used and maintained;
[#9675] machinery and equipment is properly maintained and safe to use;
[#9675] working practices are regularly reviewed to improve health and safety.
TRAINING AND COMPETENCE
9
Training is one way of achieving health and safety competence and helps to convert information into safe working practices. Accident statistics show that many accidents occur when employees use machinery, equipment or substances without proper training and instruction.
10
All employees, including senior management, will need some training and information about health and safety. New employees (including volunteers and casual staff) should receive induction training on health and safety, including on how to operate machinery safely, using pesticides, emergency procedures, fire and evacuation. Also, a risk assessment may identify groups of workers especially at risk, such as young people and those employed on a casual basis for short periods each week, eg golf caddies.
11
The competence of staff should be monitored, especially as lack of job knowledge and skills can adversely affect health and safety. Any necessary update or refresher training should be provided. Special attention may need to be given to employees who deputise for others. Their skills are likely to be underdeveloped and they may need more help in understanding how to work in a safe and healthy way.
12
Further information and advice on training can be obtained from:
[#9675] the Greenkeepers Training Committee;
[#9675] local Training and Enterprise Councils who will be able to provide advice on National Vocational Qualifications. In Scotland, Local Enterprise Companies and Scottish Vocational Qualifications;
[#9675] Agricultural Training Board - Landbase;
[#9675] National Proficiency Tests Council;
[#9675] colleges of further education.
13
There is also a HSE leaflet Train to survive1 which provides general advice on training.
REPORTING ACCIDENTS AND INCIDENTS
14
Certain injuries which occur at the workplace or as a result of work activities are reportable under the Reporting of Injuries, Diseases and Dangerous Occurrences Regulations 1985 (RIDDOR) (see Appendix 1). Deciding whether a particular incident or accident should be reported is often confusing. Below is a table showing typical accidents which occur at work and giving details of whether or not they are reportable under RIDDOR.
Person involved Accident details Type of injury Reportable under RIDDOR
Employee Fell off step ladder while reaching for a box in the club's storeroom. Broke arm. Major injury Phone enforcing authority. Send form F2508 within 7 days.
Employee Hurt back while lifting a piece of machinery. Off work for 5 days. Over-3-day injury Send F2508 to enforcing authority within 7 days.
Employee Hurt back while digging garden at home. Off work for 5 days. Not reportable: accident not at work.
Visitor Slipped on a wet surface in the clubhouse. Broke leg. Major injury Phone enforcing authority. Send F2508 within 7 days.
Visitor Tripped over a poorly maintained floor covering. Off work for 4 days. Not reportable: over-3-day injuries only applicable to employees.
Employee or visitor Any illness from absorption of any substance (including pesticide) needing medical treatment. Major injury Phone enforcing authority. Send F2508 within 7 days.
15
In general, the nature of the injury determines whether it is major or over-3-day.
GENERAL WORKING ENVIRONMENT
16
When creating a safe General working environment, the following areas will need particular attention:
[#9675] the course, workshops and storage facilities;
[#9675] the golf professional's shop, including the workshop;
[#9675] working practices, such as manual handling and using electricity, and the need for General personal protective equipment.
THE COURSE
17
All golf courses have a range of hazards which present risks to maintenance staff, including:
[#9675] tractors, particularly when used on steep slopes;
[#9675] machinery specifically designed for turf maintenance (including grass cutters, spikers, scarifiers, fertiliser distributors, pesticide applicators, grass trimmers and brush cutters);
[#9675] chain saws, post hole borers and drainage machinery;
[#9675] sprinkler systems;
[#9675] rabbit eradication schemes involving gassing or shooting;
[#9675] lakes, ponds, reservoirs and water courses (risk of drowning and diseases like leptospirosis);
New course considerations
18
Although this guidance is not specifically aimed at golf course designers, a series of useful points to consider is set out in Appendix 2.
THE GOLF PROFESSIONAL'S PREMISES
19
The professional's shop is covered by the same legislation as other retail premises and the club has legal responsibilities relating to the provision, by them, of the professional's premises. The workshop is also covered by health and safety legislation. For example, care needs to be taken if solvents (eg petrol) are used for cleaning in the shop or workshop. These may be flammable toxic or both, and their storage and use should be closely controlled. A licence from the fire authorities may be required for flammables such as petrol.
20
If professionals employ staff they will have the same legal responsibilities as any other employer in relation to their employees and to others who may be affected by their work activities.
MANUAL HANDLING
21
More than one quarter of all accidents reported to the HSE and local authorities each year arise from manual handling. Although the increased use of tractor driven and self-propelled machinery on golf courses has helped to reduce the need for manual handling, many courses will still use pedestrian controlled mowers which are often heavy and awkward to lift. Sprains and strains of backs and limbs are often sustained from manual handling and lifting. The injury may also be a result of cumulative damage often sustained over a considerable period, which can result in physical impairment or even permanent disability. Sprains and strains occur when bodily force is applied incorrectly. Poor posture is often a contributory factor.
22
When making an assessment of the manual handling operations at the course (see Appendix 1), there are four elements to be considered: the task, the load, the General working environment and individual capability. It should be possible to complete the majority of assessments by you or your staff. For simple tasks, there is no reason for the assessment to be written down.
GENERAL PERSONAL PROTECTIVE EQUIPMENT (PPE)
23
Certain types of PPE will need to be supplied for golf course staff, particularly those working with dangerous machinery and hazardous substances (see Appendix 1).
24
PPE for use at golf courses might include:
[#9675] eye protection to guard against the hazard of splashes from pesticides, sprays and dust;
[#9675] ear protection to guard against excessive noise levels when using certain types of machinery, eg rotary mowers, chain saws;
[#9675] safety footwear to guard against the hazard of objects falling or crushing the foot and to protect against adverse weather, and machinery such as trimmers and hover mowers;
[#9675] gloves and, where necessary, arm protection to guard against cuts and abrasions, extremes of temperature, skin irritation and dermatitis and contact with pesticides and hazardous liquids;
[#9675] protective clothing for the body to guard against contact with pesticides and other hazardous substances, cold, heat and bad weather. Protective clothing and equipment should be worn when using machinery such as chain saws.
ELECTRICAL SAFETY
25
Electricity can cause shocks, burns and start fires and can be fatal. The use of electrical equipment at golf courses is subject to the Electricity at Work Regulations 1989. One of the main requirements of the Regulations is that employers and self-employed persons maintain, so far as is reasonably practicable, electrical systems and electrical equipment within their control so as to prevent danger.
26
Electrical equipment within work premises should be installed and maintained by a competent person. If using an outside contractor, one way of demonstrating the contractor's competence would be to select an organisation who is a certificate holder of the National Inspection Council for Electrical Installation Contracting (NICEIC).
Fixed electrical installations
27
All fixed electrical installations should be designed, installed, operated and maintained to prevent electrical danger. The Institution of Electrical Engineers (IEE) produces guidance on the construction of fixed installations in buildings and elsewhere. This is now in its sixteenth edition and is called the Regulations for electrical installations2. This is recognised as a British Standard (BS 7671:1992). It should be remembered that despite the title, these are not a legal requirement. The IEE also produces guidance on the inspection and testing of fixed installations.
Portable equipment
28
Portable equipment, particularly items which are subject to strenuous use and hazardous conditions (ie water, grease), will need maintaining to ensure that it is safe for use. All equipment should be checked visually on a regular basis, to ensure that cables are in good condition, plugs are sound and correctly attached and the equipment is in general good repair. These checks should be part of an inspection programme but can also be undertaken by the user before and during use. Additionally, staff who have received training may be able to check the plug to see that a fuse is in use, and that cable terminations are secure and correct including the earth connection. However, no-one should carry out electrical work unless they have sufficient knowledge to prevent danger to themselves or others. It is not necessary to employ an electrician to carry out the visual checks. Testing by a competent person may be required under certain circumstances.
29
Hand-held electrical equipment used outdoors, or where there is a lot of earthed metalwork, should where possible be supplied at reduced voltage, ie 110 volt centre tapped earth (CTE) system from a safety isolating transformer. If this is not possible the equipment should be connected through a residual current device (RCD) which will cut off the power quickly if there is an earth fault. Such a fault could result in someone receiving an electric shock. The RCD should be checked monthly by pressing the test button.
30
Battery charging should be carried out in a well ventilated area away from sparks and other sources of ignition.
Overhead lines
31
Electricity can flash over from overhead power lines to nearby objects, and the results can be lethal. There is particular danger to anyone working with a ladder, pole pruner or irrigation pipe close to an overhead line or on a tractor with loading bucket or any other equipment working near the line. Avoidance of danger from overhead electrical lines3 provides further information. If sand, turf or other material is delivered to the golf course, it is essential that any load is tipped at least 10 metres from any line to avoid the risk of possible contact. Care also needs to be taken if digging holes in case of buried live cables. It is always advisable to contact the regional electricity company before starting any work close to overhead lines or buried cables.
MACHINERY
32
Machinery can be dangerous. Important aspects in ensuring that machinery is used safely and without risk of fatal or serious accidents include: training, competence, maintenance, use of correct equipment and safe systems of work. Training provides staff with information on safe working practices and machines should only be used by someone who has been trained and is competent in their use. Competence can be developed by training and experience. To prevent unauthorised access, all machinery should be locked securely away when not in use and only employees of the club should have access to the workshop and garage areas.
33
Maintenance of machinery is essential. Safety devices, brakes, controls etc need regular maintenance. Guarding requirements have been developed to help prevent accidents which can happen when people get too close to dangerous parts of machines. In general, most guarding requirements are designed to prevent the operator and others from coming in contact with power driven components of machinery whilst in use. Machines are designed and fitted with guards to make them safe and it is essential that guards are not removed from machinery until all components come to rest. Machines should only be used if all guards are in place. BS 5304:1988 Safety of machinery4 provides guidance on how to guard machinery effectively.
34
Machinery in use on golf courses can suffer build up of grass/debris around engine/transmission areas. This debris can absorb fuel, oil etc and eventually become a serious fire hazard. Cleaning at regular intervals will help to avoid this.
35
Most machines used on golf courses are driven by petrol or diesel-fuelled engines. Ensuring that all staff are adequately instructed in the safe use, transport and storage of petrol and diesel will help to prevent injuries and fire.
TRACTORS
36
Tractors can overturn when working on slopes, uneven ground or near ditches. Incorrect loading, turning on slopes and unsafe driving will increase the risk of overturn. Remember there is no such thing as a 'safe' slope. Travel on grass slopes requires particular care. Providing tractors with a safety cab, frame or roll bar will give the driver protection if they overturn.
37
Drivers should be adequately trained, particularly to recognise potentially dangerous situations. The training should emphasise the need for care and concentration when working with tractors and, in particular, the importance of paying attention to changes in ground conditions, eg potholes, gravel or the turning circle load and speed which may affect the safety of the operation.
38
Routine checks and maintenance will help to ensure that:
[#9675] brakes on tractors and equipment are connected and working efficiently. Independent brakes should be linked whenever braked steering is not required;
[#9675] steering is maintained so that there is no excessive free movement and no unnecessary play on the front wheel bearings;
[#9675] tyres are inflated to the correct pressure and have adequate tread. They should not be used if they have suffered damage which could affect their safe use.
POWER TAKE-OFF (PTO)
39
Every year people are killed or seriously injured in accidents involving PTO and PTO shafts. Many of these accidents would have been prevented if the PTO and PTO shaft had been correctly fitted with guards which were properly used and maintained. A tractor PTO and the PTO shaft of a machine can be extremely dangerous and require guarding unless safe by position and never approached when in motion or use. The guard and the PTO shaft should be properly maintained by regular lubrication in accordance with the manufacturer's instructions. If the guard is damaged in any way, the machine should be taken out of service until a new guard is fitted. Further information on the guarding of PTOs and PTO shafts is given in the free HSE leaflet Power take-off and power take-off shafts5.
40
Many 'compact' tractors, ie the type used for grass maintenance, have a mid-mounted PTO drive facility as well as a rear PTO. The PTO drives are interlocked, ie a person must sit on the driving seat before you can drive the machine. Particular attention should be given to the maintenance of this safety device.
MOWERS
41
A wide range of mowers are used on golf courses and they vary from semi-mounted tractor trailed or gang mowers to specially designed self-propelled equipment. Mowers may be ground driven or powered through the tractor PTO. Where self-propelled mowers are used, because of their grip in certain situations, they should be driven very carefully during transport.
42
Mower blades are sharp and cause accidents. These usually occur when carrying out maintenance or clearing blockages and it is important that staff are trained and competent to carry out the task. Mower blades can detach themselves if not properly maintained or when not changed at intervals specified by manufacturers. Many self-propelled mowers are designed to ensure that the blades cease to rotate when the operator leaves the driving seat. This device should be well maintained to ensure that it works every time. It is important to check that the blades have stopped rotating before any adjustment is carried out on the machine. In all cases if any adjustment is required to or near the blades the machine should be switched off and, if necessary, the power supply isolated. This also applies to smaller pedestrian-controlled mowers. Rotary mowers are particularly hazardous if allowed to rotate when the machine is stationary. When buying a new pedestrian-controlled rotary mower ensure that it is fitted with a brake to stop the rotation of the blades when the power is disconnected.
43
Rotary mowers present a particular hazard if the guards around the blade are removed or damaged. The hover type of mower which is often used to cut steep banks is also dangerous if not used according to the manufacturer's instructions. Steep banks should not be cut with rigid bladed rotary mowers. There have been a number of serious injuries to operators who have slipped when operating on a steep slope. If operators slip it is possible for their feet to slide under the mower and come in contact with the rotating blades. Wearing steel toe capped boots with good grip will help to prevent serious injuries.
TURF SCARIFIERS, SLITTERS AND SPIKING EQUIPMENT
44
All guards should be properly maintained and in position at all times. No-one, apart from the operator should be in close proximity to the machine while it is in use. Before attempting any maintenance of the machine or guards, the power should be disconnected and all moving parts stopped. The operator should be aware of and follow the manufacturer's instructions for safe operation.
GROOMERS
45
These machines are designed to carry out a number of functions, eg mowing, scarifying and brushing, in one operation and may also collect the debris and cuttings at the same time. They have sophisticated hydraulic controls and it is important that these are carefully maintained, particularly those used to lift part of the equipment.
BRUSH CUTTERS, BRUSH SAWS AND GRASS TRIMMERS
46
Brush cutters are used to clear out dense undergrowth or scrubland and can be used to fell small trees and bushes. Brush saws are fitted with a small circular saw blade designed to cut wood and are driven by a petrol engine. The blades are guarded to prevent material being thrown out by the cutting action, injuring the operator. Operators should ensure that there are no other people within 10 metres of the working area. The operation of this machine requires considerable training, skill and experience. Operators should wear hearing protection and eye protection. Sturdy footwear offering a good grip and trousers offering protection against grass juices or wet vegetation are recommended.
47
These machines should be properly maintained by a competent person. The blade should be sharpened in accordance with the manufacturer's instructions and should be regularly examined and immediately discarded if there is any evidence of cracking or overheating.
48
Some brush cutters can be converted to a grass trimmer, ie a machine that has a fast revolving nylon line used to cut long grass close to walls, fences, plants etc. Although less dangerous than a brush cutter, they still can cause accidents, including injuries to the eye and it is therefore advisable to wear eye and hearing protection. Before converting a trimmer to a brush saw by fitting a circular saw type blade, it is important that the manufacturer confirms that the machine is capable of being used in this mode and that adequate guards are available to ensure that it complies with current safety standards.
49
Different guards are normally provided for brush cutter blade, brush saw blade and trimmer. It is important to fit correct guards which match the cutting attachment. A trimmer needs to be fitted with a barrier if it is used with a saw or brush cutter blade.
FERTILISER SPREADERS
50
Mounted spreaders can affect the stability of the tractor when used on sloping or uneven ground. All tractor drivers required to use this type of equipment should be trained in its use and be aware of the effect of the spreader on the stability of the tractor. Drivers should be made aware of the risks of becoming trapped between the tractor and mounted equipment such as spreaders.
SAND GRADERS
51
Most golf courses have machinery to extract stones and pebbles from sand used to fill bunkers or to mix soils or other materials to make a compost mulch.
52
If the machine is power driven, all guards should be kept in place to ensure that no-one can come in contact with any of the moving parts. Check with your supplier to ensure that your machine complies with current safety standards.
OTHER MACHINERY
53
Golf clubs may use or hire other machines such as drainage machines, post hole borers, chain-saws etc. If these machines are used very infrequently it will probably be safer to engage a contractor to carry out the work. Competence in any task is achieved by training and experience. It is very difficult to achieve an acceptable level of competence when an operator, even though fully trained, only uses the equipment infrequently. Chain-saws in particular are dangerous even when properly maintained and equipped with all safety devices.
54
It is important that the chain-saw is checked thoroughly before use to ensure that all guards are in position and in good repair, the chain, guide bar and sprockets are undamaged and all external fittings are secure. Cutting chains with only kickback guard, eg guard links, are recommended. The chain should be correctly tensioned and sharpened according to the manufacturer's specifications. The lubrication system should be working and the chain brake tested to ensure that it works properly. The HSE leaflet Safety with chainsaws6 contains useful information on chain-saw use and General personal protective equipment.
55
Anyone using a chain-saw even for a short period, should wear the full protective clothing. This includes: safety helmet, face visor, hearing protection, clothing that is close fitting, chain-saw operator's gloves, leg protection and chain-saw operator's safety boots. All users should be properly trained. Information on training courses is available from the Forestry Aboricultural Safety Council; the Agricultural Training Board - Landbase or the National Proficiency Tests Council (see Appendix 5).
SPRINKLER SYSTEMS
56
Most courses now have some form of sprinkler system, usually operated by an electric pump through a control panel. There can be a problem from connecting up to a sprinkler system if there is hydraulic pressure, as pipes can fly off and hit the operator. The electrical part of the installation should comply with the Electricity at Work Regulations 1989. The installation should be carried out by a competent person and staff using the equipment should be trained in its safe use.
PERSONAL TRANSPORT
57
Because of the distances involved, many greenkeepers have transport available to move them round the course. This can be by tractor, tractor and trailer, all terrain vehicle or golf buggy. Apart from the golf buggy, most machines are designed only to seat the operator and it is important that other people should not ride on machines or tractors except on a trailer. In particular children should not be allowed to ride on machines. Golf buggies normally have seats for two people and light equipment can be carried in comparative safety. If the club provide all terrain vehicles (ATVs) for personal transport at work the operator should be trained in their safe use, wear suitable clothing (ie not loose fitting) and suitable head protection which preferably provides protection for the neck as well. Motor cycle helmets to BS 6658:1985 are adequate for this purpose. Care should be taken to secure any tools or equipment carried on the ATV.
58
ATVs used for spraying pesticides can expose the operator to high levels of pesticides, eg spraying with a following or head wind, with high booms, or in a figure eight or similar pattern. Ways to reduce the risk include considering alternative methods of control or application and selecting the pesticide that gives the least risk to operators and the environment.
OCCUPATIONAL HEALTH
HAZARDOUS SUBSTANCES
59
Certain hazardous substances which are used on the golf course will be subject to the Control of Substances Hazardous to Health Regulations 1988 (COSHH) (see Appendix 1). COSHH will cover those substances which are very toxic, toxic (see Figure 1), corrosive (see Figure 2) or harmful, irritant (see Figure 3).
Figure 1: Toxic
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Figure 2: Corrosive
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Figure 3: Harmful, Irritant
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Some pesticides may be hazardous substances under COSHH, as may be cleaning agents and oils or other substances used in workshops. Not all hazardous substances come in labelled packages. Some, such as wood dust, may be created by a process being carried out. Others may be present in the particular environment, for instance leptospirosis may present a hazard if rats and open water courses are present. Complying with COSHH involves assessing the risks, deciding what precautions are needed, and preventing or controlling the risks. Any necessary controls should be used and employees informed of the precautions to be taken.
60
Certain information about products may be found on the label. If the information is not readily available from the label or supplier's advisory leaflet, then a data sheet for that product may be obtained from the supplier or manufacturer. They have a legal duty to supply such information.
61
The assessment of risks does not have to be written down. However, many employers find it useful to do so, especially when dealing with more hazardous substances, where the control measures are complex, or where it is necessary for communication purposes. The key element is that the assessment is suitable and sufficient, this means that the detail and expertise with which it is carried out are in proportion to the nature and degree of risk arising from the work.
62
As with all management tasks, the process should be kept under review to ensure that appropriate control measures are being carried out and to check whether there have been any significant changes to working procedures, new materials etc which would merit reassessment.
USE OF PESTICIDES
63
Pesticide products are wide ranging and include fungicides, herbicides, insecticides, public hygiene pest control products, rodenticides and wood preservatives. Their sale, supply, advertisement, storage and use is prohibited under the Control of Pesticides Regulations 1986 (COPR) unless they have been approved (see Appendix 1).
64
Only approved pesticides should be used and the label should include a MAFF or HSE number. If you are unsure check with your supplier. The conditions of use are stated in every individual pesticide approval and are printed on the product label. The conditions of use should be followed. Anyone working with pesticides is required to be competent (see section on Training and competence - paragraphs 9-13).
65
Some pesticides are approved for 'agricultural use' (if you are unsure - check with your supplier). If these products are used the operator may require a certificate of competence. The Code of Practice for the use of approved pesticides in amenity and industrial areas7 provides further information on user training and certification and classification of pesticides.
66
If pesticide product labels have become unreadable, eg faded, the pesticide should be disposed of safely. Local waste regulation authorities can give advice on acceptable disposal routes, including details of local companies offering such services. The waste regulation authorities are:
[#9675] in England, county councils (for non-metropolitan areas) and district councils or single purpose waste authorities (for metropolitan areas);
[#9675] in Wales, district councils;
[#9675] in Scotland, district or island councils.
67
All pesticides should be stored in a suitably constructed, secure bin, cabinet, chest or vault capable of resisting fire for at least 30 minutes and robust enough to withstand reasonably foreseeable accidental impact and be secure against theft and vandalism. The store needs to be fitted with a sump which will retain the total capacity plus 10% of the contents stored, in the event of all containers failing simultaneously (eg in the case of a fire). It should not be sited in a staff room...