The dangers of poorly ventilated workplaces


A guide to safe work in poorly ventilated places not covered under the Occupational Health and Safety (Confined Spaces) Regulations 1996.

Introduction

The dangers of poorly ventilated workplaces
Most employers and employees are now aware that 'confined spaces' can be highly dangerous, and in some cases, deadly environments for human beings to work in. Incidents in confined spaces have resulted in serious injury, death and multiple fatalities.

However, there are many poorly ventilated places that are not defined as confined spaces under the Occupational Health and Safety (Confined Spaces) Regulations 1996, but which may also be a hazardous environment for employees.

This document provides guidance on protecting the health and safety of employees working in poorly ventilated places.

What is a confined space?
A confined space is determined by the hazards associated with a set of defined circumstances (restricted entry or exit, hazardous atmospheres or risk of engulfment). Therefore, a confined space exists when specific factors are present at the same time. (The full regulatory definition of a confined space is presented in Attachment 1.)

What are "dangerous places that aren't confined spaces"?
Poorly ventilated places that are not defined as confined spaces include:

  • cool stores.
  • freezer rooms.
  • controlled atmosphere rooms (used for the long term storage of fruit).
  • rooms with poor ventilation.

 Three factors can make a poorly ventilated place dangerous to employees:

  • the characteristics of the workplace.
  • the type of work they are carrying out.
  • a hazard such as an atmosphere dangerous to life.

 A poorly ventilated place may become dangerous:

  • if there is an unsafe level of atmospheric contaminants or the oxygen level is oxygen unsafe
  • if the ventilation is poor and will not remove contaminants or maintain oxygen at a safe level.

 Some examples of dangerous work in poorly ventilated places include:

•         LPG (liquid petroleum gas) forklift trucks in cool stores. Carbon monoxide may build up where poorly tuned LPG forklift trucks operate and ventilation is insufficient. (For further detail about safe work practices relating to this topic, see Attachment 2.)

•         Petrol or diesel vehicles or machines in cool stores, freezer rooms or other rooms.  The levels of carbon monoxide emitted from these vehicles or machines will generally be of more concern than those of LPG-fuelled engines.

•         Activation of controlled atmosphere rooms used for the long term storage of fruit.  The oxygen level in controlled atmosphere rooms may be as low as 2% hazard. and exposure will be life-threatening.  (For further detail about safe work practices relating to this topic, see Attachment 3.)

•         The use of cleaning solvents such as degreasing agents in small poorly ventilated rooms.  Poorly ventilated workplaces are not likely to fit the definition of confined spaces under the Regulations as they do not meet all the factors outlined in the definition (e.g. they generally have large entrances and doorways that do not restrict entry). However, these types of places are covered under Section 21 of Occupational Health and Safety Act 2004 which states that employers must provide and maintain so far as is reasonably practicable a working environment that is safe and without risks to health.

Examples of incidents in poorly ventilated places
an employee died of carbon monoxide poisoning and seven others who tried to help him were seriously affected by carbon monoxide exposure after an LPG forklift truck was operated in a cool store. The seven people trying to assist were hospitalised and treated for carbon monoxide poisoning.

  • four LPG forklift trucks were being used in a freezer room to move stock. Six employees were affected by carbon monoxide exposure and were hospitalised.
  • reports from workers in the fruit growing industry indicate that there have been several "near miss" incidents in controlled atmosphere rooms. Cool rooms used for long-term fruit storage may have a controlled atmosphere which oxygen deficient.

 Managing health and safety in poorly ventilated places

The key to effective management of risks in poorly ventilated places is to:

  • identify all hazards associated with work in the poorly ventilated place.
  • assess the risks associated with identified hazards.
  • control these risks.

The term hazard means something that has the potential to cause injury or harm. The term risk means the likelihood of injury or illness arising from exposure to the hazard

Hazard identification
These outlines of typical hazards may help when identifying situations or events that could cause injury or illness.

Atmospheric contaminants
Atmospheric (airborne) contaminants such as gases, vapours, fumes, mists and the dusts may build up in a poorly ventilated place and be inhaled by those working in close proximity to their source. Inhalation is the most significant route by which contaminants enter the human body at work.

Two examples of atmospheric contaminants in poorly ventilated places:
Carbon monoxide build-up from the exhausts of LPG, petrol or diesel powered equipment or vehicles in a cool store. Carbon monoxide is an asphyxiant and interferes with oxygen delivery in the body. Over-exposure may be fatal.

The use of deeming solvents such as degreasers in small rooms. Cleaning solvents readily form vapours that can be inhaled, while the activity of cleaning can quickly increase the concentration of vapours. Exposure to solvent vapours can cause headaches and drowsiness and, at higher concentrations, some vapours may cause unconsciousness and death. As well, the use of cleaning solvents may generate a flammable atmosphere, creating additional risk, especially if equipment is not flameproof.

Flammable contaminants
The two factors which make an atmosphere flammable are the oxygen in air and a flammable gas, vapour or dust which is present in the proper mixture. If a source of ignition is introduced into a poorly ventilated place containing a flammable atmosphere, an explosion or fire will result.

Sources of ignition include:

  • open flames, sources of heat, static or friction
  • equipment that is not intrinsically safe (flameproof)
  • welding and cutting
  • electronic equipment such as cameras, pagers and mobile telephones
  • internal combustion engines
  • activities such as grinding, chipping and abrasive blasting

Oxygen deficiency
The oxygen concentration in air at normal atmospheric pressure is around 21% and is considered safe between 19.5% and 23.5%. However, work activity such as that found in controlled atmosphere rooms for the long-term storage of fruit can change the oxygen concentration.

Controlled atmosphere storage is used to slow the deterioration and maintain the quality of apples and pears for year-round marketing. Atmosphere control may be achieved by a combination of fast cooling, temperature control and control of oxygen and carbon dioxide levels in a gas-tight cool store.

Typically, controlled atmosphere rooms may have oxygen levels around 2%. This atmosphere is immediately dangerous to life.

Other hazards
A range of other hazards may also be present and could include:

  • entry and build-up of gases and liquids from adjacent processes
  • mechanical hazards which may crush, cut, or injure an employee's body
  • noise exposure which may result in hearing loss, tinnitus, or other non-auditory health effects
  • manual handling hazards
  • environmental hazards including heat or cold stress, wet or damp environments and slips, trips and falls arising from slippery surfaces
  • traffic hazards such as forklift truck traffic
  • biological and radiation hazards

Risk assessment
Following the identification of hazards, the risk of injury or illness to employees associated with each of the identified hazards should be assessed.

The risk factors outlined in this section should be considered in relation to each identified hazard.

How to assess a poorly ventilated place
he nature of the poorly ventilated place may contribute to the risks associated with identified hazards. Consider the following:

  • Where is the poorly ventilated place located? Is it near other work areas or is it isolated? Does it open out to the external environment or is it within another structure?
  • Are there any processes occurring nearby that might affect the risk associated with the hazard?
  • Do partitions make it difficult to see whether someone is in difficulty?
  • Does small air volume or a low ventilation rate mean airborne contaminants might build up quickly?
  • Is there poor lighting or other visibility conditions that may interfere with a person's ability to work safely?

Changes occurring in oxygen or contaminant levels
Is there likely to be a change in the level of oxygen or contaminants? This information will help to establish proper controls:

Have all proposed operations and work procedures been reviewed to see if they cause a change in conditions?

  • Have atmospheric conditions of the poorly ventilated space or emissions from equipment taken into it, been tested or monitored to determine the likelihood of a change?

A change in atmospheric conditions may occur from:

  • Activation of a controlled atmosphere room. This results in a dramatic reduction of the oxygen level of the atmosphere and entry to such an atmosphere should not take place unless a high level of safety control is in place.
  • The operation of a poorly tuned LPG forklift truck in a cool store for a period of time, resulting in increased levels of carbon monoxide gas in the atmosphere.

The method of the work carried out
The type of work carried out and the method of work may contribute to the risks associated with identified hazards. Consider the following:

  • Does the current work method contribute to the risk? For example, how many employees are likely to be working in the area and for how long?
  • Are there other ways to do the work that would be safer? For example, is there a way to reduce the time spent in the poorly ventilated place or the number of people required to be there?

The risk involved in using LPG forklift trucks in a cool store can result in carbon monoxide poisoning, especially if vehicles are in a poor state of tune.

Electric powered forklift trucks eliminate the risk of carbon monoxide poisoning and should be used for all work in cool stores.

Any changes to the workplace or work practices may introduce new hazards and thus introduce a need for further reassessment.

Emergency procedures required

The type of emergency procedures needed will depend on the nature of the poorly ventilated place, its hazards and associated risks. Consider the following:

  • Procedures for First Aid and resuscitation. Have employees had first Aid training?
  • Do all people working in the poorly ventilated place have access to emergency treatment?
  • Is emergency equipment used for First Aid, resuscitation and communication kept in good working order?
  • Is personal protective equipment and protective clothing for emergencies used and available? Are employees trained in its use? Is it maintained?
  • The outcome of the risk assessment will determine the risk control measures that need to be put in place.

Risk control
Risk control is the process of, determining and implementing appropriate measures to control the assessed risks, Risk elimination or reduction is usually achieved by implementing a combination of controls. Some examples are outlined in this section.

Elimination or substitution
Elimination of the need to enter the poorly ventilated place should be the first consideration wherever possible. If it is not possible to eliminate the need to enter, then risks should be reduced by substitution of processes or substances to reduce the risks. Consider the following:

  • Can carbon monoxide emissions from LPG forklift trucks operating in cool rooms be eliminated by substituting with electric forklift trucks?
  • Can a water-based paint be used in place of an organic solvent-based paint?
  • Can paint be applied by brush rather than by spray painting?
  • Can a degreaser be substituted with a less toxic product?

 Engineering controls

  • Engineering controls are engineering procedures that reduce exposure to a hazard at its source or in its transmission (excluding personal protective equipment). Examples include ventilation and the use of intrinsically safe equipment. Other examples are:
  • The use of intrinsically safe equipment in poorly ventilated places where flammable solvents are being used.
  • The installation of a catalytic purifier to the exhaust of an LPG forklift truck to reduce vehicle emissions.
  • Proper tuning and maintenance of LPG forklift trucks to reduce the level of carbon monoxide emitted from the exhaust.
  • Engineering controls for use in addition to other controls include:
  • The installation of a ventilation system to maintain a safe atmosphere while an LPG forklift truck is operating in cool store.
  • The installation of a ventilation system to maintain a safe atmosphere while cleaning solvent vapours are being used in a small room.

 Administrative controls
Administrative controls involve the use of systems of work or procedures to control the risk. Consider the following examples:

  • Development and maintenance of safe work procedures.
  • Modification of work practices to control entry to poorly ventilated places.
  • Supervision of employees working in poorly ventilated places.
  • Training employees to understand the hazards of contaminants, the use of controls and emergency situations and responses.
  • Signage to warn workers of any hazards.

 Personal protective equipment
Personal protective equipment should only be used when other controls are inadequate or not appropriate. The parts of the body commonly protected by these measures include the eyes and face, head, hands, skin, feet, ears and lungs. Personal protective equipment should be properly selected, used and maintained as any misuse or malfunction could result in exposure.

 Review of control measures
Control measures should be reviewed and improved, maintained, extended or replaced as necessary to ensure adequate control. Reviews should take place at regular intervals if indicated by a risk assessment record or if there are changes to the workplace or method of work.

 

Attachment 1
DEFINITION OF A CONFINED SPACE

"Confined space" as defined in the Occupational Health and Safety (Confined Spaces) Regulations1996means a space in any vat, tank, pit, pipe, duct, flue, oven, chimney, silo, reaction vessel, container, receptacle, underground sewer, shaft, well, trench or tunnel (except if the shaft, trench or tunnel is a mine or is part of the workings of a mine) or other similar enclosed or partially enclosed structure, if the space—

(a)  is, or is intended to be, or is likely to be, entered by any person; and

(b)  has a limited or restricted means for entry or exit that makes it physically difficult for a person to enter or exit the space; and

(c)  is, or is intended to be, at normal atmospheric pressure while any person is in the space; and

(d)  contains, or is intended to contain, or is likely to contain—

(i) an atmosphere that has a harmful level of any contaminant; or

(ii) an atmosphere that does not have a safe oxygen level; or

(iii) any stored substance, except liquids, that could cause engulfment;


Attachment 2
OPERATION OF LPG FORKLIFT TRUCKS IN POORLY VENTILATED PLACES

Introduction

Forklift trucks are used in many industries to handle and move materials. Petrol, diesel and liquid petroleum gas (LPG) powered forklift trucks give out a range of hazardous airborne contaminants from their exhausts, including carbon monoxide.  LPG forklift trucks generally have a "cleaner" exhaust than petrol or diesel powered engines. However they can still produce dangerous levels of airborne contaminants such as carbon monoxide if they are used in a poorly ventilated place, such as a cool store or freezer room.

The Health Effects of Carbon Monoxide

Carbon monoxide is a colourless and odourless gas. It interferes with oxygen delivery to the tissues in the body. The heart and the central nervous system are the main areas of the body affected by carbon monoxide poisoning.

The early symptoms of carbon monoxide poisoning include headaches and nausea.  Prolonged exposure may result in dizziness, collapse, unconsciousness, coma and death. The severity of the effects depends on the level and length of exposure. As carbon monoxide has no smell, people exposed to high levels may have little or no warning before they collapse. A person who has experienced a high level of exposure may suffer permanent damage to the heart or central nervous system.

Exposure Standard for Carbon Monoxide

The national exposure standard for carbon monoxide is expressed as a time weighted average (TWA) of 30 parts per million (ppm). The exposure standard listed in the Hazardous Substances Information System (HSIS) published by Australian Safety and Compensation Council on its Internet site..  Exposure standards apply to long-term exposure to a substance over an eight hour day for a five day working week over an entire working life for nearly all workers.

Those using or interpreting exposure standards should refer to the Office of the Australian Safety and Compensation Council’s documentation. which also considers short term exposure and the toxicological effects of carbon monoxide, The standards set to protect employees in the workplace from exposure to a harmful level of carbon monoxide.

Risk Control Measures

It is much safer to use electric forklift trucks for entry and work in poorly ventilated places. Electric forklift trucks do not give out any exhaust fumes and there is no risk of exposure to carbon monoxide. Electric forklift trucks should be used in preference to petrol, diesel or LPG-powered forklift trucks in poorly ventilated spaces.

Many workplaces operate LPG forklift trucks in poorly ventilated places when electric forklift trucks are not available or if their use is not practicable. If LPG forklift trucks are used in poorly ventilated places then a high level of control should be in place to make sure that employees are not exposed to a dangerous level of carbon monoxide.

A documented safe work procedure outlining the use of LPG forklift trucks should be developed and put into practice, in consultation with health and safety representatives.

The 1983 National Health and Medical Research Council (NHRC) publication Recommended Practice in the Operation of Liquefied Petroleum Gas Powered Engines in Confined and/or Poorly Ventilated Spaces provides guidance on safe work procedures for the use of LPG forklift trucks in poorly ventilated places. The NHMRC recommendations focus on carburetion systems, fuel, tuning and air quality.

The work procedure should follow the NHRC recommendations and make sure that the exposure standard for carbon monoxide is not exceeded. The following points are based on the NH&.MRC recommendations and should be included in a safe work procedure:

Tuning, carburetion systems and fuel

  • Test the exhaust emission levels in the tail pipe of the forklift truck
  • Make sure the forklift is tuned to yield an exhaust gas containing:
    • not more than 0.2% (2000 ppm) carbon monoxide at idling.
    • not more than 0.1 % (1000 ppm) carbon monoxide at speed (no load).

These tuning levels are readily achievable without affecting the performance of the forklift truck and have been widely used in Australia for many years.

  • Re-test and re-tune the forklift truck for carbon monoxide emission:
    • weekly until carburettor stability is known and at less frequent intervals after that.
    • if the brand or composition of the fuel changes.
    • if work is carried out on the carburetion or ignition systems.
  • Document the results of carbon monoxide emission testing and tuning.  This will help to assess the ability of the forklift to hold its tune. It will also help to identify the need for further maintenance or repair work through detecting early changes in the state of tune (maintenance on forklift trucks should follow the manufacturer's recommendation).
  • Seek a guarantee of consistent composition of automotive grade LPG from suppliers. The propane/butane ratio of LPG may change between batches from some suppliers. This may affect the concentration of carbon monoxide emitted in the exhaust of forklift trucks.
  • Make sure that LPG forklift trucks used are equipped with a stable, tamper-resistant carburetion system.
  • Avoid using dual fuel carburetion systems such as petrol and LPG. If dual fuel carburetion systems are used, make sure that forklift trucks are powered by LPG during entry and work in poorly ventilated places. Changing the power source between petrol and LPG may affect the tune of the engine, so make sure that engines are properly tuned when they are operated in LPG mode.
  • Consider fitting forklift trucks with a catalytic purifier to further lower carbon monoxide emission. However, the catalytic purifier will have little or no impact on lowering the carbon monoxide emission levels of a forklift truck which has not been tuned properly.

 Acceptable air quality

  • Maintain acceptable air quality during entry and work in poorly ventilated places. This can be achieved by making sure that employees' exposure to carbon monoxide does not exceed the exposure standard. Acceptable air quality can be achieved by making sure that work practices minimise employee exposure to carbon monoxide. The best way to find out whether acceptable air quality has been achieved is to measure carbon monoxide levels, using gas detection equipment designed to detect carbon monoxide. Measurements should be taken in the breathing zone of employees to assess their exposure to carbon monoxide.
  • Use additional control measures if LPG forklift trucks have to be used for entry for extended periods, such as for continuous work. These additional control measures include:
    • mechanical ventilation.
    • air monitoring to make sure that the carbon monoxide exposure standard is not exceeded.

Administrative controls

  • Make sure that electric or LPG forklift trucks to be used in poorly ventilated places are clearly identified from those not to be used in these areas.
  • Make sure the engine of the forklift truck is turned off when not in use, to avoid unnecessary build-up of exhaust fumes.
  • Train employees in working safely on tasks associated with the use of LPG forklift trucks in poorly ventilated places. The training should be relevant to the needs of individual employees, as different people require a different level of training.

 

Examples of topics to be covered in a training program include the following:

  • health effects and warning signs of exposure to carbon monoxide.
  • control measures that are in place.
  • use of atmospheric testing equipment.
  • correct tuning techniques for LPG forklift trucks (mechanics).
  • safe work procedures.

Further information
- National Health and Medical Research Council (NH&.MRC). "Recommended Practice in the Operation of Liquefied Petroleum Gas Powered Engines in Confined and/or Poorly Ventilated Spaces", June1983.
- Hazardous Substances Information System (HSIS) published by Australian Safety and Compensation Council

Attachment 3

LONG-TERM FRUIT STORAGE IN CONTROLLED ATMOSPHERE ROOMS

Introduction
Controlled atmosphere storage is used to slow the deterioration and maintain the quality of apples and pears for year-round marketing. The term controlled atmosphere for fruit storage means a combination of fast cooling, temperature control, and control of oxygen and carbon dioxide levels in a gas tight cool store.

The oxygen concentration in air at normal atmospheric pressure is approximately 21% and is considered safe between 19.5% and 23.5%. Typically, controlled atmosphere rooms have very low levels of oxygen, with oxygen levels around 1% to 2% during operation.

Exposure to an oxygen deficient atmosphere is immediately dangerous to life, so a person entering a controlled atmosphere room while it is in operation may collapse and die within minutes.

Therefore, oxygen deficiency in controlled atmosphere rooms is a major occupational health and safety issue.

If entry and exit to a controlled atmosphere room is restricted, then the entry could fall within the definition of a confined space, in the Occupational Health and Safety (Confined Spaces) Regulations 1996.

An example of a restricted entry or exit is entry through an access way in the ceiling of an activated controlled atmosphere room. This type of entry increases the risk to the health and safety of employees and is strongly discouraged. The Regulations require designers and manufacturers to eliminate the need to enter confined spaces. However, if it is not practicable to eliminate the need to enter, the means of entry and exit should be made safe.

It is important to consider the full range of circumstances that may arise when operating controlled atmosphere rooms.

The health effects of oxygen deficiency
If the body doesn't get enough oxygen, cells begin to die. The degree of damage caused by oxygen deficiency depends on the particular cells which are affected.  The health effects of oxygen deficiency depend on the level and length of time of exposure. Oxygen deficiency can: 

  • affect breathing and muscle coordination.
  • affect behaviour and judgement – which may place the person at risk.
  • result in abnormal fatigue on exertion.
  • result in nausea, vomiting and collapse.
  • result in death within minutes.

In what ways can people be exposed to an oxygen deficient atmosphere?
People may be at risk of exposure to an oxygen deficient atmosphere when operating in controlled atmosphere rooms or working nearby. Some examples of dangerous situations are:

  • if a controlled atmosphere system is activated while a person is locked inside the room.
  • if entry is made to a controlled atmosphere room while it is operating.
  • when a person opens an activated controlled atmosphere room.
  • if entry is made to a controlled atmosphere room which has been fully opened, but is still being ventilated.
  • if a person is located in a poorly ventilated area next to a controlled atmosphere room which has been fully opened and is being ventilated.

Risk control measures
Entry should not be made to a controlled atmosphere room while it is operating. Safe work procedures should be followed whenever any tasks are performed which are associated with operating the controlled atmosphere room, such as closing and opening the doors to the room. Such activities must be closely supervised and monitored by the employer or employer's representative.

A documented safe work procedure setting out the controlled atmosphere process should be developed and put into practice, in consultation with the health and safety representative.

The following points should be included in a safe work procedure.

Closing a controlled atmosphere room

  • Ensure that all people have left the controlled atmosphere room before it is closed.
  • Close and lock the doors.
  • Signpost the doors with clear and prominent signs that warn people not to enter the room. The sign may be worded as follows:

 

DANGER

Keep out

Atmosphere deadly if inhaled

 

Activate the controlled atmosphere system.

Opening a controlled atmosphere room

  • Make sure that opening of controlled atmosphere rooms is done by a person authorised by the employer and is someone who understands and follows the safe work procedures.
  • Make sure that this task is closely supervised and observed by a second person who also understands and follows the safe work procedures.
  • Place a barricade using safety cones, ropes or other portable barriers in a semi-circle at least three metres from the doorway to stop unauthorised access.
  • Make sure that people not involved with opening the doors are kept well away from the immediate vicinity.
  • Place a prominent sign alongside the portable barriers warning of the danger.

The sign may be worded as above.

Record the time of opening on the sign.

  • Provide adequate ventilation in areas next to the door before opening the controlled atmosphere room. If these areas are also poorly ventilated or enclosed, then they must be barricaded as well, to stop unauthorised access.
  • Unlock the door and open to its fullest extent. Make sure that people opening the room minimise their risk of exposure to an oxygen deficient atmosphere.  One way to achieve this is to quickly move away from the room as the doors are opened.
  • Ventilate the room with air until the oxygen level is at least 19.5%. Ventilation is usually carried out by opening the doors and turning on the refrigeration fans. The time taken to ventilate a room will vary, depending on the room size, internal structure and the ventilation rate.

It may assist to determine how long it takes to ventilate the controlled atmosphere room.

This information will help to work out the time required to undertake ventilation in future.

Measure oxygen levels inside the room using appropriate gas detection equipment designed to detect oxygen. The person testing the atmosphere should not enter the room while taking the measurements. The measurements should be taken by placing a probe, connected to a recorder outside the room, into the room before the controlled atmosphere is activated, thereby eliminating the need for entry. Where possible, the atmospheric monitoring equipment of the controlled atmosphere unit should be used to take the measurements.

Measurements should be taken by a competent person who is able to follow the manufacturer's instructions and correctly interpret the results. The equipment should be correctly calibrated and maintained as recommended by the manufacturer.

Make sure that the room is not entered by anyone until the oxygen level is safe.

  • Declare the room safe for entry only when the oxygen level is at least 19.5%.
  • Record the results of atmospheric testing and the time that the cool store was declared safe.
  • Remove portable barriers and signs and start normal work activities again.

Administrative controls
These procedures should be supported by a series of administrative controls.

Prohibit entry to a controlled atmosphere room while it is in operation.

  • Make sure the control system for the controlled atmosphere room is isolated so that it cannot be activated during periods when it is not being used.  This will ensure that it cannot be operated while people are in the cool store.
  • Put procedures in place for emergency response, which include rescue and First Aid.
  • Train employees in working safely on tasks associated with controlled atmospheres. The training should be relevant to the needs of individual employees, as different people require a different level of training. Examples of topics to be covered in a training program include the following:
    • health effects and warning signs of exposure to an oxygen deficient atmosphere.
    • control measures that are in place.
    • use of the controlled atmosphere system.
    • use of atmospheric testing equipment.
    • emergency procedures.
    • safe work procedures.

 


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