Construction at large-scale events

Meeting health and safety obligations

This guidance outlines the requirements to ensure that duty holders meet their health and safety obligations for large-scale events. The guidance is for event organisers, including employers and people who manage or control a workplace. References to ‘employees’ in this guidance may include independent contractors and their employees.

What is construction work?

The Occupational Health and Safety Regulations 2017 (OHS Regulations) define construction work as any work performed in connection with the:

• construction
• alteration
• conversion
• fitting out
• commissioning
• renovation
• refurbishment
• decommissioning, or
• demolition

of any building or structure, or any similar activity.

Construction work includes the assembly or disassembly of prefabricated elements that form a building or structure.

What is a large-scale event?

WorkSafe considers a large-scale event is an event at a venue with a capacity that exceeds 5000. Events in venues such as Albert Park, Rod Laver Arena, AAMI Park, Melbourne Cricket Ground, Marvel Stadium and Geelong Showgrounds could be large-scale events. Examples of such events include concerts, the Australian Grand Prix, music festivals and community fairs and shows.

What is not a large-scale event?

An event would not be a large-scale event if the capacity of the venue did not exceed 5000. For example, a small farmers market at a local primary school.

Construction work at large-scale events

The build, bump-in, bump-out and dismantle phases of a large-scale event may include construction work. The work might also be high-risk construction work (HRCW) and require a Safe Work Method Statement (SWMS). You will find more information about HRCW and SWMS later on this page and on the WorkSafe website’s SWMS page.

Construction work at an event is likely to include the following, for example:

• Erection and dismantling of a prescribed temporary structure as defined by the Building Regulations 2018. Prescribed temporary structures include:
  • tents, marquees or booths with a floor area greater than 100 m²
  • seating stands for more than 20 people
  • stages or platforms, including sky borders and stage wings, that exceed 150 m² in floor area
  • prefabricated buildings with an area exceeding 100 m² and that are not placed directly on the ground surface.
• Installation and dismantling of temporary demountable stage structures, such as ground support tower systems for truss structures.

Unlikely to be construction work

Not all work during the build, bump-in, bump-out and deconstruct phases is construction work. The following are unlikely to be construction work:

• Assembling, connecting and bolting-in prefabricated trusses that have been delivered to the event site, before lifting them into position. Note: Lifting the trusses into position is likely to require a high-risk work licence (HRWL). Find more information about HRWLs under the heading ‘High-risk work’ or on the WorkSafe website.
• Attaching sound, lighting, video, backline and special effects equipment to an existing permanent stadium roof, roof truss or frame:
  • if the structure has been inspected and certified by a structural engineer to be able to withstand heavy loads, and
  • if doing so will not adversely affect the structural soundness of the structure.

A HRWL will be required to lift the equipment into place.

• Setting up and dismantling of stages, if:
  • the stage comes with a proprietary frame, for example, a rolling stage, and
  • can be wheeled directly into position, and
  • is easily collapsed for packing purposes, and
  • does not rely on the use of mechanical load-shifting equipment to ensure the stability of the structure during erection, use and dismantling.
    Note: Mechanical load-shifting equipment such as forklifts can still be used to reduce the risk of manual handling. For example, forklifts could be used to safely install stage panels and for transport between storage locations and venues. Where equipment such as forklifts is used, a HRWL will be required.
• Alteration of permanent stages, if the alteration:
  • will not adversely affect the structural soundness of the stage, and
  • would qualify for an exemption from a building permit.
• Making deliveries to a single designated delivery area. For example, the delivery and movement of equipment boxes from a truck to a single designated delivery point within a defined construction zone on or near a stage or delay tower under construction.
  Note: An event may have multiple construction zones and a single designated delivery area within each zone. Deliveries to different points across a designated construction zone would be construction work.
• Minor testing, maintenance or repair work done in connection with a building or structure. Testing, maintenance or repair work is considered of a minor nature if it requires little or no pre-start preparation of the work area, is small scale and involves minimal control measures. Little or no pre-start preparation of the work area means:
  • small-scale work not impacting on the existing design or stability of the structure
  • work completed using hand tools
  • work with minimal effect on the surroundings.
• Work on a non-electrical component of electrical equipment, if the person carrying out the work is not exposed to an electrical risk.
• Locating or mounting plug-and-play-type electrical equipment or fixing it in place when the task does not involve connecting the equipment to an electricity supply. For example, using a clamp to connect lighting to a truss.
• Work that involves connecting electrical equipment to an electricity supply by means of a flexible cord plug and socket outlet. For example, using flexible extension cords or plug-and-play-type cabling across different areas of a stage to connect portable plug-in electrical equipment or lighting.
• Replacing electrical equipment or a component of electrical equipment if that task can be safely done by a person who does not have expertise in electrical work. For example, replacing a fuse or light bulb.
• Work on electrical equipment that is operated by electricity at extra-low voltage.

You can seek legal advice if you're not sure whether your work is construction work.

As an employer or person with management or control of a large-scale event, you must control risks for all work at a workplace. You must do this regardless of whether the work is construction work or not. You must control risks so far as is reasonably practicable. Find more information about your obligations under the heading ‘Legal duties’.

Site-specific training

As an employer, you must provide site-specific occupational health and safety training to employees who do construction work. The training must relate to the particular workplace where the work is being done.

Construction induction card

Workers performing construction work must hold a valid construction induction card. As an employer, you must not allow a person to perform construction work unless the person holds a valid construction induction card. This card is also known as a white card. The card is proof that the holder has completed general construction induction training. A person must do the ‘Prepare to work safely in the construction industry’ training course to get a white card. The course includes topics such as:

• workplace health and safety legislation
• common site hazards
• risk controls.

The white card is valid across all states and territories in Australia. This means if a person has lawfully obtained a construction induction card in another Australian state or territory, it will be recognised in Victoria.

In Victoria, all construction induction training must:

• take place in a classroom environment, and
• be delivered by a registered training organisation (RTO).

Once a person completes the course, the RTO applies to WorkSafe on the person’s behalf. WorkSafe then issues the person with a white card.

The WorkSafe website has a list of approved RTOs.

The following people do not require a white card, although they may require a site-specific induction: 

• Workers performing non-construction tasks outside of defined construction zones. 
  Note: A venue may have one or more defined construction zones. This does not mean the entire venue is a construction site.
• Visitors to the construction zone on an event site under construction and who are accompanied at all times by a person who has received construction induction training. For example, engineers or architects observing work.
• Visitors to a clearly designated non-construction work zone on an event site. People this might apply to include, for example, those attending rehearsals.
• People temporarily at the construction zone on an event site to make deliveries in designated delivery areas.

There are exemptions to the requirements for construction induction training. Find details about exemptions in the OHS Regulations.

High-risk work

A white card might not be the only certification a worker requires on a construction site. Work with certain high-risk equipment requires the relevant high-risk work licence (HRWL). For example, a person doing rigging work to construct or adjust a concert stage would require the appropriate HRWL.

WorkSafe issues HRWLs under the OHS Regulations. There are 30 classes of HRWL. HRWLs that may be required for large-scale events include the following:

• Basic scaffolding licence
• Intermediate scaffolding licence
• Advanced scaffolding licence
• Dogging licence
• Basic rigging licence
• Intermediate rigging licence
• Advanced rigging licence
• Forklift truck operation licence
• Boom-type elevating work platform operation licence.

Rigging work

Certain types of theatrical or event rigging may not be rigging work as defined in the OHS Regulations. A HRWL is not required for this type of rigging work. It includes the following:

• Operation of flying systems.
  Note that an operator of a flying/hoisting system, whether counterweight or powered, needs to:
  • have received specific training in the use of the particular flying/hoisting system
  • be competent to operate the equipment
  • have undertaken a venue-specific induction before operating the flying/hoisting system.
• Adjusting lights on a truss or lighting bar/suspension or attaching/suspending items to a pre-existing/proprietary system. This includes, for example:
  • hanging technical elements such as lighting, sound and audio-visual equipment from a theatrical hook-style clamp
  • attaching cloths, drapes and banners
  • attaching scenery with a dedicated attachment point
  • attaching styling/design elements
  • attaching or running cables
  • positioning a truss upright or horizontally without the use of any mechanical lifting devices, for example, 2 people lifting a truss by hand or having a truss span on 2 crank-up stands.

High-risk construction work

Some construction work is high-risk construction work (HRCW). HRCW has an increased risk of serious injury or death. The OHS Regulations define 19 types of construction activities as HRCW. Those activities include construction work:

• where there is a risk of a person falling from a height greater than 2 m
• at workplaces where there is any movement of powered mobile plant
• where there are structural alterations that require temporary support to prevent collapse.

Find more information about HRCW on the WorkSafe website.

Safe work method statements

If you’re performing HRWC and there is a risk to the health or safety of any person arising from the work, then you must complete a safe work method statement (SWMS). A SWMS is a legally required document. The OHS Regulations require employers and self-employed people to prepare a SWMS before HRCW begins. They must also review and revise the SWMS as needed.

The SWMS sets out:

• the HRCW to be carried out at a workplace
• the hazards and risks arising from these activities
• the measures to be put in place to control the risks
• how the risk controls measures are to be implemented.

Find more information about SWMS on the WorkSafe website.

Exemptions for high-risk work

WorkSafe can provide exemptions from complying with the OHS Regulations, in certain situations.

Applicants should have a valid reason for applying for an exemption in relation to high-risk work. Applying for an exemption should be the last option, sought only after exhausting reasonably practicable alternatives.

WorkSafe can only grant an exemption in relation to high-risk work if it is satisfied a person who does not have a HRWL can do the work as safely as a person who has a licence. WorkSafe is also able to impose conditions on an exemption to ensure the required level of safety is met.

It can take time to consider and issue an exemption. It is important that applicants submit their applications for an exemption to WorkSafe as early as possible before an event.

Find more information about applying for an exemption on the WorkSafe website.

When does construction work end?

There will be a point where construction work in the build, bump-in, bump-out and deconstruct phases ends. This may happen at different times across a workplace. You should treat each construction activity on an individual case-by-case basis.

An event is ready to proceed only when construction work is complete. However, if construction work is needed during the event, workers doing this construction work will need a white card. For example, the modification or relocation of a ground support structure.

Construction work will likely start again when bump-out or deconstruction work begins when the event has finished.

Pyrotechnics

To use fireworks at an event you must hold a licence to use fireworks as a pyrotechnician or be directly supervised by a pyrotechnician.

Find information about using fireworks on the WorkSafe website.

Legal duties

The OHS Act is a law in Victoria. It imposes duties on employers and other people who manage and control workplaces. For example, event organisers and event management.

Duties of employers

If you are an employer, you must provide and maintain for your employees a working environment that is safe and without risks to health. You must fulfil this duty so far as is reasonably practicable. Under the OHS Act, your employees can include:

• any independent contractors you have engaged
• employees of those independent contractors.

To provide a working environment that is safe and without risks to health, you must eliminate risks to health and safety. You must do this so far as is reasonably practicable. If it is not reasonably practicable to eliminate risks to health and safety, you must reduce those risks so far as is reasonably practicable.

As an employer, you also have a duty to other people who are not employees. For example:

• members of the public
• volunteers
• event patrons.

You must ensure your work or business does not affect the health or safety of other people, so far as is reasonably practicable.

Consultation

The OHS Act places a duty on employers to consult with their employees. This means you must talk to employees about things you are doing that affect or are likely to affect their health and safety. You must include independent contractors and their employees in consultation. Issues you must consult about include, for example:

• finding and investigating hazards and risks
• deciding how to control risks
• planning changes to the workplace
• planning changes to how work is done, if the planned changes may affect employee health and safety
• planning changes to the equipment, substances or other things used at the workplace.

You can find more information about consultation on the WorkSafe website. This includes details of the issues you must consult on.

Duties of those who manage or control workplaces

A person who has any management or control over a workplace also has OHS Act duties. These duties apply whether that person is a business owner or otherwise. For example, you may be an event organiser. You have hired an event space and contractors you have engaged are working in the event space. In this case, you would have management or control over the event space. As a person with any management or control over a workplace, you must ensure, so far as is reasonably practicable that:

• the workplace is safe and without risks to health
• the means of entering and leaving the workplace are safe and without risks to health.

OHS Regulations

Each event is different. It is important that you identify and address any hazards and risks relevant to your event. An event venue is a workplace for those involved in setting-up, running and dismantling the venue. You will have duties under the OHS Act. You will also have duties under the OHS Regulations. For example, the OHS Regulations have specific regulations about:

• construction work
• plant
• the use of hazardous substances
• hazardous manual handling
• prevention of falls
• noise.

Risk management

Putting on an event can be a complex, dynamic process. There will be a range of hazards and risks to address. It is likely some hazards and risks will change during the event. As an event organiser, you should be ready to respond to changing conditions. You should be prepared to reassess hazards and adjust risk controls as necessary.

The risk management process

A safe workplace requires a systematic approach to finding hazards and controlling risks. That systematic approach is known as the risk management process.

The risk management process is a continuous cycle. It begins with consultation, followed by 4 steps:

1. Identifying hazards.
2. Assessing risks.
3. Controlling risks.
4. Reviewing and, where necessary, revising risk controls.

Consultation continues through every step.

Find more information about the risk management process on the WorkSafe website.

Relevant legislation

People with legal duties should make sure they are familiar with relevant health and safety legislation. This includes the following legislation administered by WorkSafe:

Acts

• Occupational Health and Safety Act 2004
• Equipment (Public Safety) Act 1994
• Dangerous Goods Act 1985

Regulations

• OHS Regulations
• Equipment (Public Safety) Regulations 2017
• Dangerous Goods (Storage and Handling) Regulations 2022
• Dangerous Goods (Explosives) Regulations 2022