Health and Safety Executive Business Plan 2008/09
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Health and Safety Executive Business Plan 2008/09 Health and Safety Executive Business Plan 2008/09 Document Transcript

  • Health and Safety Executive Business Plan 2008/09
  • For more information about the Health and Safety Executive, including the HSE Board and Senior Management Team structure, see www.hse.gov.uk/aboutus. 2
  • Health and Safety Executive Business Plan 2008/09 Contents 4 Foreword 5 Introduction 6 Targets 8 Delivering health and safety outcomes 8 Delivering occupational health and safety outcomes 12 Delivering major hazards outcomes 14 Enabling justice 16 Providing support to Government 18 Demonstrating public accountability 20 Corporate 24 Resource strategy 3
  • Health and Safety Executive Business Plan 2008/09 Foreword I t is with great pleasure that I present › continuing to enforce the law where now responsible for delivering a DSO. We the Health and Safety Executive appropriate and improving the need strong leadership in all sectors and (HSE) Business Plan for 2008/09, consistency of our enforcement especially the major hazards industries; my first as Chair of HSE. 2008/09 will decision making; and there is also the additional challenge of be a year of change and transition for › communicating the benefits a shortage of skilled personnel, and the our organisation. With the merger of of sensible health and safety strong likelihood of new nuclear build. the Health and Safety Commission management and taking a robust On the occupational health and safety and HSE we face the future as a stance in defending the reputation side, we have seen increased injury new unitary body with a governance of health and safety. rates in the construction industry, a structure better suited to the modern continued high rate of major injury due world. We will also see the beginning of Many of the things envisaged by to slipping and tripping, and a recent the transition to a single Headquarters the Strategy are now in place and this increase in cases of work-related stress at Redgrave Court, Merseyside. We plan builds on these achievements and and musculoskeletal disorders. Deaths are entering a new spending review takes us forward. arising from past exposure to asbestos, period, which brings a new financial The picture on targets is more dusts and chemicals still account for settlement and new challenges in the mixed. The Health and safety statistics about 95% of all work-related fatalities, shape of delivering the Department for 2006/07 provide the latest occupational and will only be brought under control if Work and Pensions’ (DWP) Departmental health and safety data for the those at risk today recognise the hazards Strategic Objective (DSO). We will also Public Service Agreement (PSA) and they face and take action accordingly. start thinking about a new Strategy. Revitalising Health and Safety (RHS) This provides the context for our plan. Our challenge is to build upon our past targets. They show that our work is on We now face a need to review successes while continuing to adapt track to deliver the injury targets, but our delivery strategy for the next few and change our organisation to be fit for there is more to be done to achieve ill years. This is an important piece of purpose in the present and future. health and working days lost targets. work that I am keen to get right. We HSE has achieved a great deal in We will publish 2007/08 statistics in the will start work on it later this year and implementing the Strategy launched in autumn, which will allow us to make aim to produce a new five- to ten-year 2004, including: a final assessment of performance strategy, from which the three-year plan › making significant progress in against the PSA targets and update will flow, which will set the direction for embedding our partnership with our assessment on RHS. On the major continued success. local authorities (LAs) as ‘the way hazards side, the nuclear and onshore I am proud to be Chair of HSE. This we do business’; PSA targets have been met, but not is a well-respected organisation with › piloting new approaches to the offshore target. None of the targets a strong purpose – stopping people delivering support and advice to can be achieved by HSE alone – we being killed, injured or made ill by work. small businesses on occupational must continue to work with dutyholders This plan builds on our considerable health and safety issues; and stakeholders to drive improved success in delivering that aim over the › simplifying the concept of risk performance. years. I hope you will help us to deliver assessment with our Five steps to So we have enjoyed some successes this plan in whatever way you can. risk assessment guidance; over the past few years, but some › promoting the importance of involve- challenges remain and new ones are ment by workers and employers in always arising. There is still much to do Judith Hackitt CBE managing health and safety; to meet the RHS targets and HSE is Chair, Health and Safety Executive 4
  • Health and Safety Executive Business Plan 2008/09 T his is the HSE Business Plan risk rests with those who create it. and responsibilities: for 2008/09, the first year of HSE’s settlement for spending › Delivering health and safety the Government’s spending review SR07 was agreed in late outcomes; review 2007 (SR07) period. The plan February 2008. The key priorities for › Enabling justice; is an important document that we are 2008/09 are reflected in this plan. To › Providing support to Government; required to produce to discharge our ensure that we can respond to emerging and statutory obligations. It sets out our issues, incidents and opportunities we › Demonstrating public priorities to ministers, our managers may adjust our allocations of resources accountability. and staff, and to our stakeholders. It in year. HSE has decided to create a sets out how we will: fund of £10 million for new initiatives in Figure 1 (on page 7) sets out the › continue to deliver our mission the areas of agriculture, construction, key objectives and key performance of working with LAs to protect waste and recycling, LA partnership, measures for each business. people’s health and safety, by migrant/vunerable workers and The business areas allow us to ensuring risks in the changing communications for small and medium effectively account for the exercise of workplace are properly controlled; enterprises. We will be reviewing the our statutory powers and the public › pursue our vision to gain HSE Strategy later this year and the funds we receive. Each business area recognition of health and safety as priorities for the remaining two years contributes towards our vision, mission a cornerstone of civilised society, for the SR07 period will be adjusted and the targets. The detailed objectives and with that, achieve a record of in accordance with the outcomes for each area, the activities within them, workplace health and safety that from that review. and the interactions between business leads the world; and With finite resources, some tough areas are covered in the body of this › deliver the targets for work-related decisions are required on what we plan. Our corporate support functions, health and safety. can and cannot do. It is important for which include communication, us to be clear on what we are best science and research, and financial HSE’s role is to protect the health, placed to do and what is for others to management, underpin and enable safety and welfare of workers and do. To make these decisions easier, work within the business areas. safeguard others who may be exposed we will improve our efficiency and As well as monitoring our ongoing to risks from work activities. This is done effectiveness, aim to recover our true performance, it is vital that we look by providing information and advice; regulation costs, deliver more through forward to identify and manage risks. raising awareness; conducting and partnership working, and reduce our We maintain our Corporate Risk sponsoring research; promoting training; overheads further. In deciding on Management Plan for this purpose; it proposing new laws and standards; priorities and work streams, we have identifies significant risks to delivery and enforcing the law. However, these agreed with ministers that HSE will: of HSE’s objectives, the management activities alone are not enough to › maintain the health and safety targets; controls we have in place or planned, deliver the targets, which measure the › maintain the enforcement policy; and and sources of assurance that these performance of Britain’s health and › maintain the level of front-line are effective. safety system as a whole. HSE and inspectors. We hope you find this an accessible LAs provide support to employers and and useful guide to HSE’s plans for workers in making arrangements to We have produced this plan around the coming year. Our website manage their own health and safety a framework of four key business areas (www.hse.gov.uk) contains more sensibly. The responsibility for managing that cover the full scope of HSE’s roles detail on the areas of work. 5
  • Health and Safety Executive Business Plan 2008/09 T he RHS strategy statement, On major hazards, from a Figure 1 (opposite) launched in June 2000, set three 2001/02 baseline, to achieve sustained national targets for improving improvement in: Overview of HSE businesses, occupational health and safety › the number of events reported by key objectives and key outcomes by 2010: licence holders which are judged › to reduce the number of working to have the potential to challenge a performance measures days lost per 100 000 workers nuclear safety system; from work-related injury and ill › the number of major and significant health by 30%; hydrocarbon releases in the › to reduce the incidence rate of cases offshore oil and gas sector; and of work-related ill health by 20%; › the number of relevant Reporting of › to reduce the incidence rate Injuries, Diseases and Dangerous of fatalities and major injury Occurrences Regulations (RIDDOR) accidents by 10%. reportable dangerous occurrences in the onshore sector. We report progress against these targets in November each year. From April 2008, HSE will work to meet DWP’s Departmental Strategic Objective: ‘Improve health and safety outcomes in Great Britain, through progressive improvement in the control of work-related risks.’ The detail of the performance measures for the DSO are currently being developed with DWP. Progress to 2010/11 will be measured against the following: On occupational health and safety outcomes, from a 1999/2000 baseline, to achieve sustained improvement in: › the incidence rate of fatal and major injuries; and › the incidence rate of work-related ill health. 6
  • Health and Safety Executive Business Plan 2008/09 Our mission is for HSE, working with LAs, to protect people’s health and safety by ensuring that risks in the changing workplace are properly controlled. Business Key objectives Key performance measures Health and safety targets Revitalising Health and Safety: › To reduce the number of working days lost per 100 000 workers from work- related injury and ill health by 30%. › To reduce the incidence rate of cases Health of work-related ill health by 20%. and safety › To reduce the incidence rate of fatalities outcomes and major injury accidents by 10%. To deliver improved health, safety and welfare outcomes Departmental Strategic Objective: › To reduce the incidence of fatal and major injuries in workplaces. › To reduce the incidence of work- related ill health. › To reduce the number of dangerous events in the nuclear industry and in the offshore and onshore oil and gas sector. To improve standards of health and safety › To investigate cases of injury and ill and prevent harm health that meet the selection criteria. › To follow up complaints that meet To help promote a just and fair society in our the HSE’s selection procedure and Enabling area of responsibility criteria. justice › To conduct enforcement action in To provide equitable conditions for all line with the Enforcement Policy businesses to operate, and motivate those statement. complying with the law To assist in major policy decisions and › To discharge 95% of FOI requests provide specialist advice and evidence within the 20-day time limit. › To respond to Parliamentary Support to To help shape the health and safety debate questions and requests to time. Government › To produce and publish research To provide ministers with timely, accurate reports, outcomes from incident and succinct advice on health and safety investigations, and consultations. › To publish reports, accounts and plans. To demonstrate high standards of accuracy, Public openness and timeliness accountability To use the best available knowledge and science Corporate support 7
  • Health and Safety Executive Business Plan 2008/09 Objectives take enforcement action, including prosecution. Equally, HSE is aware that enforcement action To deliver improved health, safety and welfare outcomes has a wider impact by raising awareness of the for those in, or otherwise affected by, work: importance of managing risks. › to ensure appropriate protection to people from health Delivering occupational health and safety risks; and safety outcomes The work is delivered through HSE’s ‘Fit › to influence people and organisations – dutyholders for work, fit for life, fit for tomorrow’ (Fit3) and stakeholders – to embrace and promote high Programme by sector and operational staff working in partnership with LAs, central and local standards of health and safety; and government and a wide range of stakeholders. › to reduce the risk of catastrophic incidents in major HSE continues to embed and strengthen its partnership with LAs. It is clear that a strong hazard industries partnership between HSE and LAs is essential and that all concerned continue to make the H SE uses a range of interventions to partnership ‘the way we do business’. Regular help enable improvements in health meetings between the HSE Board and the and safety. These include partnership Local Government Panel enable HSE to engage working, stakeholder engagement, providing with local government issues, ensuring a high- information and advice, carrying out targeted level dialogue. At a working level, LAs campaigns, safety case assessments, are involved in joint projects, including both issuing licences, inspections, investigations, planning and delivery of work tailored to the communications and formal enforcement. These needs of the local community. can all raise awareness, increase assurance, We cover a wide range of industries and enable lessons to be learnt and contribute to sectors including manufacturing, construction, improvements in health and safety management agriculture, and both public and commercial – and fewer deaths, injuries and ill health. services. With environmental issues receiving The health and safety targets underpin much greater attention, we are continuing to target of HSE’s drive to improve standards across the waste and recycling, where the incidence of spectrum of workplaces and work activities. injury and ill health remains a concern. Using sensible risk management principles, and We continue to learn and to target effort based on sound evidence, these targets focus where we know we need to make an impact. HSE’s efforts where they are most needed and Some of our priorities, like long-latency illness, enable us to measure the effectiveness of the will take many years of consistent effort before chosen interventions. we see the benefits. For others, like falls from Responsibility for health and safety lies height, we can have a more immediate effect, with the employers, employees, operators of and our statistics already show that we have facilities and other dutyholders. In serious cases made significant progress to reduce the number of non-compliance, HSE will not hesitate to of people killed and injured as a result of a fall. 8
  • Health and Safety Executive Business Plan 2008/09 Reducing the incidence of workplace and occupation – requires a the cleaning industry, food retail, hotel and slips and trips and falls from sustained and focused effort. catering, maintenance and care homes. height in targeted sectors Falls from height continue to be the Several of these interventions involve cross- most common cause of workplace fatality. programme and joint LA/HSE working. Slip and trip Work in 2008/09 will build on the Key outcomes – the overall outcome is injuries are the momentum of the ‘Shattered Lives’ to reduce the number of slip and trip and largest cause campaign (Quarter 4 (Q4) 2007/08), and fall from height major injuries and fatalities. of workplace a number of key audiences will receive Intermediate outcomes will be a range of injury (nearly a range of interventions (inspection, leading indicators that lead to improved 11 000 workers stakeholder engagement, communication health and safety outcomes, including: injured last year, activity, e-learning tool) targeted to their › raised awareness; responsible for over a third of all major needs. LAs are key partners here, as a › improved attitudes; injuries) and their ubiquitous nature – number of these interventions will take › changed behaviour; and that they can happen in just about every place in LA-enforced sectors, including › improved risk control. We have made progress in our efforts › Implementing the Stress Management to improve occupational health and safety Standards (or other equivalent approaches) to outcomes, but the scale of the challenge promote, where appropriate, compliance with remains considerable. The national statistics the duty to complete a suitable and sufficient published in November 2007 showed that the risk assessment for work-related stress. progress on ill health and days lost targets is › Continuing to reduce the incidence of not on course, but progress on the injuries dermatitis across a broad range of industries reduction target is on course. Our internal where skin hazards are an issue. leading indicators give a more positive overall › Raising the profile of the duty to manage picture, but there is clearly more to do. The Fit3 asbestos, and raising awareness among Programme will continue in 2008/09, enabling high-risk groups, especially maintenance us to consolidate our earlier work and apply workers and apprentices, with a national some of the lessons learnt about improving the campaign in Q4 2008/09. targeting and effectiveness of our interventions. › Working with industry and suppliers to reduce While our future priorities will be influenced by the incidence of respiratory disease and the outcome statistics and our in-house leading cancers in a range of industries. indicators, we must also maintain constancy of purpose. We are also learning to segment our Fit3 Programme: Reducing injury and ill health market better, and to target the right people › Undertaking inspection and other targeted with the right techniques. work with high-risk industries (with an evidence-based mix of audience, topic, and health and safety focus) including agriculture, Key deliverables construction, and waste and recycling. › Continuing to provide information and Fit3 Programme: Reducing injury › Raising the profile of slips and trips across a broad range of industries to embed the messages promoted in the 2007/08 ‘Shattered Lives’ campaign. › Continuing to promote and embed good practice in relation to workplace transport and falls from height, to achieve sustained improvements. Fit3 Programme: Reducing ill health › Promoting compliance with published guidance on musculoskeletal disorders, focusing on reducing the incidence of back pain and associated working days lost and promoting awareness of upper limb disorders. 9
  • Health and Safety Executive Business Plan 2008/09 Pilot (LOPP) initiative; disseminating the findings to the LOPP community and key HSE interests. › Taking forward HSE/Government response to the Better Regulation Executive’s small and medium-sized enterprise review. › Reviewing and updating the HSE ‘model’, guidance on health and safety management, reflecting the needs of the modern economy and of the wide variety of organisations. › Promoting worker involvement and consultation and publishing new good practice guidance on worker involvement, along with a redrafted legal series publication and a short leaflet for small and micro businesses. Communication guidance with particular emphasis on › Communicating the benefits of sensible hard-to-reach audiences such as small health and safety management using a range businesses, the self-employed construction of communication techniques. sector and the agricultural community. › Taking a robust stance in defending HSE’s › Extending communication activity on existing reputation and the need for sensible health campaigns and themes into new areas to and safety management. add strength and credence to key corporate › Delivering innovative communication messages. campaigns to promulgate key messages that make an impact. Promote the benefits of sensible health and › Taking a proactive approach to public relations safety management and worker involvement and developing third-party advocates. Targeted interventions on specific issues will › Securing a high level of commitment from be supported and reinforced if dutyholders strategic partners to deliver health and safety have sensible, proportionate health and safety priorities through a stakeholder engagement management systems in place. programme. › Promoting and embedding the Institute of Directors (IoD)/HSE guidance for directors Non-programme priority areas and board members on leading health and › Working with appropriate stakeholders, safety at work. including LAs, to better engage with migrant › Evaluating the Large Organisation Partnership workers and their employers and increase Promoting and embedding › collaboration with HSE partners/ review their corporate governance the Institute of Directors stakeholders to promote the of health and safety in the light of (IoD)/HSE guidance guidance via conferences, house the IoD/HSE guidance. HSE will also journals, trade press etc; use the opportunity to encourage Directors and › a survey to reveal directors’ awareness successful initiatives and good board members in of the guidance – whether seen, neighbour approaches to local small the private, public read and any action planned as a firms. The project will: and third sectors result – and help shape further action » identify relevant participants and have a crucial role that might be needed to secure its ensure they receive the key messages; in leading their intended impact; and » encourage benchmarking and organisations to › inspectors employing the guidance, as practical (inter-employment sector) a high performance in health and safety: appropriate, in routine inspection and workshops to discuss what needs to this new guidance sets out what they investigation, and in regional/sector- be done to meet the guidance; need to do to be effective. A programme based projects. One such project will » use the corporate manslaughter of communication, promotion and work with selected large companies legislation as a spur to companies dissemination of the guidance will in a major manufacturing region of to review their health and safety ensure its message is delivered, in England, involving intermediaries and performance and, in particular, the particular through: LAs, encouraging the companies to contribution of their leadership. 10
  • Health and Safety Executive Business Plan 2008/09 Accommodation provided injury to a migrant worker in Scotland due and Rural Affairs (Defra); and for migrant workers to fire in the accommodation, demonstrate › ensuring appropriate health and safety that there may be poor standards of management standards on issues Evidence shows health and safety on these sites. affecting migrant workers, such as that holiday and This project aims to reduce the risks asbestos, gas and electrical safety, residential caravan to temporary and migrant workers in the vehicle/pedestrian segregation, slips sites may provide agriculture/food sector, including the and trips, manual handling and other mobile home risks in temporary accommodation, by: matters of evident concern. accommodation › working in partnership and sharing for seasonal intelligence with LAs, the Gangmaster It is expected that this approach will migrant workers working on farms or in Licensing Authority and the provide a better means of exposing poor food factories. Incidents, including a fatal Department for Environment, Food performers in the agriculture/food sector. awareness of health and safety. Performance measures › Partnership working with the Welsh Assembly Government to deliver ‘Workboost Wales’ › Annual statistics to measure progress on occupational to provide health, safety and absence health and safety targets, published in November. management support to small and medium- sized enterprises in Wales. › Quarterly in-year data and performance reports. › Supporting ‘Healthy Workplaces Milton › Delivery of progress against planned milestones to Keynes’, a project (in partnership with Milton Keynes Council) to test if a team of health quality and budget. and safety advisors from HSE and LAs can › Measuring profile and approval rating of HSE and its deliver a cost-effective advice service. › Developing a common competence framework messages among its stakeholder and specific and pilot for all health and safety regulators. general target audiences. Chemicals and biocides › Improved confidence ratings among Members The evaluation and authorisation of chemicals of Parliament and feedback from our corporate and biocides prior to market and use are important elements of a coherent approach to stakeholders. the control of workers’ and others’ exposure to › Increased third-party advocacy of health and hazardous substances. › Registration, Evaluation and Authorisation safety messages. of Chemicals (REACH): REACH will replace current chemicals legislation such as the HSE uses a number of leading indicators to assess the Notification of New Substance Regulations and Existing Substances Regulations. REACH effectiveness of its interventions. These include: will be much broader in scope, potentially › biannual surveys of employers and employees to involving a wide range of stakeholders. HSE will discharge its main function in 2008/09 as assess the effectiveness of key messages at raising the Competent Authority for REACH. awareness and changing behaviours in the workplace; › Biocides and pesticides: In performing its duties as the UK Competent Authority, › evaluation of initiatives and interventions for their HSE will operate the statutory permissioning effectiveness to inform future plans; scheme for biocides in the UK under the Biocidal Products Directive. › predictive trend data for injuries; and › carrying out exploratory work to develop leading Gas safety › Completing the competition for a modernised indicators specific to long-latency disease. gas installer registration scheme aimed at adding value to consumer gas safety and simplifying the arrangements for gas installers. 11
  • Health and Safety Executive Business Plan 2008/09 Remodelling the COMAH tory regime is operated and to put in standards for primary and secondary regulatory regime place the arrangements to respond containment and improving process to recommendations made by the safety leadership by senior managers The Buncefield Buncefield Major Incident Investigation of major hazard enterprises; incident was the Board. HSE will be seeking views from › modernised regulatory approach for most serious of outside and will take them into account in chemical major hazards delivered several that have any recommendations emerging from the through improved partnership with occurred in the review. The programme will take account of: the Environment Agency and the onshore chemical › operational experience to date; Scottish Environment Protection industry sector in › changes since then within the Agency; and recent years. HSE is determined to learn onshore chemical industry; and › land use planning and hazardous the lessons from this and other incidents › lessons from recent incidents both substance consent policies that take to improve operators’ control of risks and in the UK and abroad, including account of the findings from the to modernise the regulatory approach Buncefield. research into the Buncefield explosion adopted by the COMAH Competent mechanism. In the meantime policies Authority. The programme will run for two years that ensure the right balance is struck HSE has implemented a compre- and deliver the following outcomes: between development, prosperity and hensive programme to examine and › improved control of risk at major protection, based on current knowledge reconfigure the way the COMAH regula- hazard sites by introducing higher and a precautionary approach. Delivering major hazards outcomes in the offshore sector have not quite fallen to the HSE regulates industries in several sectors where target level. Although good progress is being made, catastrophic failures have the potential to cause these targets in themselves only provide a crude significant harm to people or society. It covers sites indication of performance and work is ongoing to licensed under the Nuclear Installation Act and develop an improved suite of indicators. other nuclear regulations, and offshore and onshore Leadership is recognised as a vital ingredient major hazard industries (offshore oil and gas; in the promotion of positive safety cultures across chemical and downstream oil; mining; explosives the major hazard industries. HSE is organising a manufacture and storage; gas storage and high- conference on process safety leadership in April pressure distribution; and biological agents). 2008 for 250 chief executives and other industry, Although occupational health and safety issues regulatory, trade union and government leaders. are addressed to the same standard in these industries as in others, the prime focus is on process safety management. This includes assessing and Key deliverables managing the effects of potential equipment failure and human error on the overall safety of the process › Progressing the introduction of safety reviews (covering hazard and risk assessments, design, into HSE’s advice to planning authorities and commissioning, operation, testing, maintenance partners across Government. and emergency procedures) to obtain the right › Amalgamation of the Office of Civil Nuclear level of assurance by the dutyholders. Security and HSE’s Nuclear Directorate. Effort will be spent on encouraging stronger Key areas of work will include more dynamic leadership, responding to significant incidents, threat assessment and implementing the issues related to ageing plant, and the Government’s vetting transformation agenda. resurgence activity (such as increased offshore › Working with industry to secure leadership exploration linked to higher oil prices, and nuclear and the effective management and control of new build). Effort will also be spent on key risk to deliver improvement in overall industry issues identified, eg asset integrity, maintenance performance and, in particular, to raise the backlogs and the availability of suitably skilled performance of the poorest performers: staff. These issues continue to present significant » implementing both specific and generic challenges to HSE’s major hazard work. lessons learned from incidents at both the Catastrophic incidents such as Buncefield Buncefield fuel storage depot and the BP remain rare events, and dangerous occurrences Texas City refinery; in the onshore, offshore and nuclear industries » extending, refining and further developing continue to show a downward trend since the base key performance indicators to help provide year (2001/02). Both the onshore and nuclear PSA assurance that major hazard risks are being targets are on track, although hydrocarbon releases adequately monitored and controlled; 12
  • Health and Safety Executive Business Plan 2008/09 Performance measures › Quarterly statistics on progress against major hazards targets. › Timely implementation of actions resulting from the Buncefield investigation. › Safety cases and permissioning outputs to time and quality performance standards. » promoting the importance of leadership at safety case assessments and development chief executive officer level in creating strong and implementation of site-specific positive safety cultures; and intervention plans. Particular attention will be » remodelling the Control of Major Hazards paid to topics of process safety leadership, (COMAH) regulatory regime to deliver smarter, ageing plant and competence of personnel, more robust processes, properly supported by and to the Nuclear Decommissioning tools, techniques and guidance. Authority driven transition at Sellafield. › Investigating significant dangerous › For 2008/09 there will be collaboration occurrences and incidents to ensure lessons across a range of topics including: developing are learnt to prevent a recurrence – at site, key performance indicators; safety culture company and sector level as appropriate. interventions; operational experience › Generic design assessments of new nuclear feedback; and change management, build and wider support to the Energy Bill. including new ways of working to improve › Maintaining assurance and compliance with efficiency and effectiveness through the major regulatory obligations at major hazard sites by hazard cross-cutting programme. Ageing, degradation and and obsolescence issues which need to and equipment operates within the limits obsolescence be managed by the operating companies set out in the safety case. HSE regulates to ensure continued safe operation. the activities in these areas in several ways: Much of These issues affect a range of › assessment of the ten-year Periodic the plant in plant items, from small replaceable Safety Reviews, which include major hazard components and systems to large a review of safety and design installations irreplaceable components and systems. standards and the ‘state of the art’ (nuclear, Ageing and degradation of small in various technical areas that are chemical, replaceable items can be mitigated by relevant to safety; onshore and offshore) is ageing. normal maintenance activities, provided › review of the output from Licence As an example, the ages of operating there are monitoring processes to check Condition 28 activities covering, nuclear reactors in the UK range from about for ageing and degradation. Some small maintenance, inspection, examination 13 to almost 40 years. Reactors requiring components can nevertheless be difficult and testing of plant; and decommissioning are generally now over to replace, eg failed thermocouples in › assessment of individual issues as 40 years old. Nuclear chemical plants have high radiation or inaccessible locations. they arise. a similar range of ages. For all existing UK The operating companies are responsi- This work is an ongoing process that nuclear installations regulated by HSE, ble for managing ageing, degradation and must continue to maintain safety for as there is a range of ageing, degradation obsolescence issues to ensure the plant long as the plant remains operational. 13
  • Health and Safety Executive Business Plan 2008/09 Objectives measures are in place to prevent recurrence. › To improve standards of health and safety and prevent We will ensure our approach on enforcement harm to workers and members of the public. takes account of the new statutory Compliance Code and developing Government thinking on › To help promote a just and fair society in our area the potential use of alternative penalties. For of responsibility, through actions in line with the example, we are aware that the Better Regulation Executive will be working, in liaison with the Enforcement Policy Statement and other relevant Local Better Regulation Office, with LAs to pilot codes (eg the Code for Crown Prosecutors). the use of Restorative Justice in LA regulation of environment health, trading standards and › To provide equitable conditions for all businesses to licensing. In addition, we will work closely in operate, and to ensure those who do comply with the partnership with LAs in complying with the Enforcement Policy Statement and requirements law are motivated to continue doing so. of section 18 of the Health and Safety at Work etc Act on enforcement. HSE continues to make the investigation and O ur key priorities with LAs as co-regulators enforcement process efficient and effective. We continue to include investigating recognise that, while we respond to failures in incidents when things go wrong, the workplace in a robust way, in accordance enquiring into complaints and enforcing the law – with the Enforcement Policy Statement, we must including through prosecution – when there also be proactive and seek improvements that has been a serious breach. prevent such failures. We are working closely HSE believes that enforcement action and with other regulators, sharing information and direct contact with those who break the law knowledge, to improve effectiveness. have an important deterrent effect in the wider health and safety community, and so play an important part in delivering improvements in Key deliverables health and safety outcomes. Carrying out targeted inspections and Investigation and complaints investigating complaints are important levers › Investigation of reported incidents and in improving health and safety standards. complaints that meet the current selection Our portfolio of interventions includes giving criteria (www.hse.gov.uk/foi/internalops/og/ advice, requiring improvements through ogprocedures/investigation/IncidSelCrits.pdf). improvement notices and stopping activities › Undertaking a ‘Complaints Handling Project’ that could lead to immediate harm through aimed at trialling the feasibility of: prohibition notices. » centralising the complaint handling Investigating incidents when things go wrong process; and is important to determine the causes, learn and » developing a more risk-based selection share lessons, and ensure that the necessary approach. 14
  • Health and Safety Executive Business Plan 2008/09 Enforcement › Delivering investigations and enforcement (notices and prosecutions) in line with the Enforcement Policy Statement (www.hse.gov. uk/pubns/hsc15.pdf). › Maintaining a framework for health and safety enforcement activity that delivers HSE’s priorities and is in line with the Government’s policies for regulators, including publishing HSE’s response to the new Statutory Compliance Code for Regulators. › Ensuring improved consistency in formal enforcement by ensuring that the Enforcement Management Model is applied for all investigations. Performance measures › Performance measures for enforcement based on evidence and judgement on consistency of decision making against the Enforcement Management Model. › Investigation of RIDDOR incidents meeting the selection criteria, to defined measures. › Follow up of complaints within three weeks of receipt, to defined measures. 15
  • Health and Safety Executive Business Plan 2008/09 Objectives Reform on health and safety issues on energy, better regulation, small businesses › To provide specialist advice and relevant evidence and vulnerable workers; and to assist the Government in major policy decisions » to Defra on health and safety around chemicals. affecting society and the economy, including decisions on health and safety policy and how these take Briefings and security › Ensuring suitable and sufficient briefings account of broader policy issues. for ministers by prompt, accurate and › To help shape the health and safety debate in the light comprehensive responses to requests and to proactively provide briefings on matters of of HSE’s experience and potential for influencing. ministerial interest. › To provide ministers with timely, accurate and succinct › Ensuring effective liaison and provision of advice on security issues. advice on health and safety in their day-to-day relations with Parliament, with industry and interest groups, and International influence › Conducting European Union (EU) and wider with the public. international business effectively, against the background of the UK Government’s broader P roviding support to Government is an international agenda: HSE-wide priority. Much Parliamentary » influencing the European Commission and ministerial briefing work arises (EC) to ensure that the implementation of reactively, and falls to centres of expertise within the EU Health and Safety strategy takes full HSE. Other planned work ensures that HSE account of the UK’s aims, particularly on remains an exemplar of proportionate, effective better regulation; regulation and that the implementation of » preparing for a review of the Seveso II European Union health and safety strategy is in Directive on control of major accident line with UK interests, and that HSE supports the hazards, including the adoption of an wider government agendas. approach to building societal risk into HSE’s land use planning advice; » influencing EC thinking on the next Key deliverables steps following the EU decision to postpone implementation of the Physical Agents › Providing advice to ministers across Directive on Electromagnetic Fields; Government on all areas of HSE expertise, » ensuring consistency in the development specifically: of key health and safety technical standards by » to DWP on workplace health and safety; providing suitable technical support for working » to Business, Enterprise and Regulatory groups and international standards committees. 16
  • Health and Safety Executive Business Plan 2008/09 Better Regulation Performance measures › Delivering HSE’s Better Regulation Simplification Plan to reduce the › Meeting the milestones for the planned deliverables to administrative burdens on business by time and budget. 25% by 2010, embedding sensible risk management, monitoring progress on key › Satisfying ministers, the HSE Board and the Senior initiatives. Management Team with the quality of analysis and › Consulting on and removing outdated registration and recording requirements. advice, to be measured by levels of agreement with › Ensuring that HSE’s policies and HSE recommendations and other feedback. programmes are developed and delivered in keeping with Government guidelines on › Responding to Parliamentary questions and requests impact assessments, consultation and Better for briefings to the timescales set by ministers, the HSE Regulation principles. Board and senior officials. Chemicals › Concluding EU negotiations on the implementation of the United Nations sponsored Globally Harmonised System for the supply of chemicals. › Working with Defra: » developing effective enforcement regulations on REACH; » on transitional arrangements for HSE to assume regulatory responsibility from Defra for laboratories working with animal pathogens and merging and simplifying the animal and human pathogen regulatory regimes; and » transferring the Pesticides Safety Directorate to HSE. 17
  • Health and Safety Executive Business Plan 2008/09 Objectives Key deliverables › To demonstrate high standards of accuracy, openness › Developing HSE’s cost recovery framework and timeliness in providing information and in to provide improved predictability of charges and a transparent basis for the charging accounting to Government, Parliament, and the public regime. for HSE’s actions, decisions and use of resources. › Completing the trial of the risk-based COMAH intervention policy resulting from › HSE’s advice and decisions to be underpinned by the the Hampton Review (Regulation and best available knowledge and science. Recognition). Publishing H SE receives approximately 500 Freedom › Producing and publishing research reports, of Information (FOI) requests a month, outcomes from incident investigations, and currently more than any other government consultations. department or body. HSE provides quarterly › Publishing reports, accounts, plans etc. statistics to the Department for Constitutional Affairs as part of the process of monitoring that Freedom of Information requests are dealt with in a timely manner. › Responding to FOI and other requests from HSE is accountable to both the public and to the public and workforce in a timely and Parliament for its actions and use of resources and appropriate manner. must demonstrate that it provides value for money as a public organisation. To this end, HSE reports Diversity internally and externally on its performance. › Delivering HSE’s equality schemes on HSE is an open and transparent body. gender, race and disability – the Race In addition to information on plans and Equality Scheme 2008–2011. performance, HSE publishes outcomes of › 2007 progress report for gender, race and research reports, incident investigations and disability. consultations on matters affecting health and › Diversity Action Plan 2008/09 (all diversity safety issues. You can find more details on the strands). HSE website www.hse.gov.uk. 18
  • Health and Safety Executive Business Plan 2008/09 Performance measures › Discharging 95% of FOI requests within the 20-day time limit and monitoring via quarterly statistics. › Publishing plans, accounts, reports, outcomes of consultations and health and safety statistics to time and set standards. › Outcomes from peer review of commissioned research (the research will be published subject to commercial and security considerations). 19
  • Health and Safety Executive Business Plan 2008/09 Objectives continue to develop their strategic partnership, › To support HSE’s priorities at a corporate level by streamlining the arrangements between them. engaging with stakeholders and undertaking generic HSL has a good record in gaining revenues from non-HSE sources and plans to further develop research and analysis. this part of its business by continuing to build its › To ensure the organisation functions effectively and capabilities and improve its competitiveness. Annual performance targets covering HSL’s efficiently, by managing our people and financial financial efficiency, its delivery of services and resources and by ensuring it performs functions in the quality of its science, and addressing the relationship with the health and safety targets are accordance with the law. published each year in an Annual Performance Agreement between the HSE and HSL Chief Executives. Internal communications HSE agreed to make £5 million of its science budget available to LAs over a period of four years Key deliverable from April 2005 so that they might make increased use of science, especially from HSL, to support Ensuring that staff at all levels are engaged, delivery. £1.85 million will be available in 2008/09. understand, and are fully focused on, HSE’s strategic priorities and the part they play in implementing them. Key deliverables Science and research Scientific support HSE and Health and Safety Laboratory (HSL) › Publishing annual statistics and assessment scientists, engineers and analysts play a of progress towards targets. pivotal role in delivering and supporting the › Completing impact assessments for major main business areas, and in supporting other policy developments, programmes and government departments. HSE will continue to significant health and safety initiatives etc. develop and refine science plans for all of its › Providing forensic and specialist support to business activities, whether focused on delivering front-line investigations and inspections. the DSO or meeting other business needs in the › Enabling improvements in the capability and short and longer term. capacity of HSE’s scientists. HSL carries out and publishes research, and provides scientific and forensic services. Research, surveys, studies and plans As an agency, HSL competes in the market › Commissioning, running and analysing data place, providing scientific research and services from working conditions surveys to track to non-HSE customers, while being HSE’s improvements and help target HSE interventions. prime provider of science. HSE and HSL plan to › Conducting studies for the business case for 20
  • Health and Safety Executive Business Plan 2008/09 Getting the science right capability is focused on HSE’s › processes: current and future business priorities; » planning – moving towards a HSE’s approach › we have flexibility to adapt to three-year rolling Science Strategy to using science changing business needs; and and Science Plan; and technology › we have effective management » bringing users and providers of is changing in arrangements. science closer together; 2008/09 as it › behaviour: takes forward the Our programme of change will take » greater flexibility within HSE/HSL recommendations effect in 2008/09 and focuses on three to meet skills shortages; from the ‘Making Best Use of Science’ key areas: » a more corporate approach to initiative, completed in 2007/08. › structure: science and technology delivery, with Over a quarter of HSE/HSL staff work » a new Science Sub-group to help clearer roles and responsibilities in science and technology. Urgent issues direct our science – external members have often dominated at the expense play an important part in this group; Improved planning will help HSL co- of important medium- to long-term » senior science advisors ordinate its work. We expect 70–80% work that underpins future successful appointed in HSE and HSL to of our work to be planned, with the rest health and safety outcomes. Given the promote consistency and quality of providing support to investigations. We will challenges HSE faces, continued success standards across the disciplines; see bigger projects and avoid duplication demands changing the way science » a new Science and Technology of effort. Our scientists will deal directly activity links into the business. Group to ensure our science and with the people who commission research. HSE aims to ensure: technology activity delivers business We will be reviewing progress to ensure we › all our science and technology benefits in front-line delivery; get the science right. health and safety at work. Key deliverables › Commissioning and publishing research on: » a second phase of work undertaken by › Supporting enforcement decision makers Imperial College (on behalf of HSE) to revise with legal advice. the estimate of occupational cancer burden in › Effective monitoring of the work of the Great Britain of six key cancers attributed to solicitor agents engaged by HSE in work exposure; enforcement cases under procurement » epidemiology, eg the relationship between arrangements which started in April 2007. shift work and disease and analysis of › Training HSE staff on legal matters. occupational data on death certificates; » corporate/strategic issues, which underpin HSE’s work including ‘good jobs’ that promote worker health and well-being, continuing development of networks of general practitioners reporting work-related ill health through The Health and Occupation Reporting (THOR) network, horizon scanning and safety issues of nanotechnology; » health and safety in the retail, warehousing, beauty and leisure industries through the LAs’ science and technology initiative; » occupational health and safety outcomes and major hazards outcomes. › Completing the Science Strategy and Plans for 2009–11. Legal support The Legal Adviser’s Office supports the work of HSE, in particular in enabling justice and providing support to Government. 21
  • Health and Safety Executive Business Plan 2008/09 Corporate support › the creation of a new, hot-desked, city centre Corporate support (including managing finance, office in Glasgow; planning, human resources, health and safety, › a reduced, modernised and hot-desked office purchasing, and estates) enables the activities in in Edinburgh; our business areas. › the completion of refurbishments at Plymouth We develop strategies and policies relating and Basingstoke; to HSE’s resources and infrastructure, providing › an evaluation of the options for Leeds and advice in these areas and governance, and Sheffield to inform whether HSE should take delivering projects and programmes to support advantage of lease breaks in 2011; HSE’s change agenda. › work with the Wales and West management team to explore the options for changes to Estates HSE’s presence in Cardiff. During 2008/09 we will progress our move from a split-site HQ in London and Bootle, Merseyside Information technology (IT) to a single HQ based in Bootle. For the first time IT is an important tool to help deliver our business in over 30 years, HSE’s executive leadership and effectively and efficiently. In 2008/09, we will: the majority of its teams covering strategy, policy, › pilot and evaluate technologies to support operational planning and corporate support will new ways of working in the field; work from a single HQ, improving communication › continue to update HSE’s scientific and collaboration and reducing our estate costs. applications; and In addition, we will maintain and rationalise HSE’s › continue to develop and implement field estate including: Smartphone technology to a wider user base in HSE. 22
  • Health and Safety Executive Business Plan 2008/09 Training Performance measures Training for 2008/09 will include: › launching a new Postgraduate Diploma in Internal communications Occupational Health and Safety for inspectors › Staff are fully engaged with the strategic priorities, and and specialists; › progressing a major re-tender for HSE’s adopt a more collegiate and focused way of work. core training programmes comprising of management development and personal skills Scientific support, research, surveys, studies and plans development; › using the re-tender to retest the market for › Projects delivered to cost and time. best value and to review purpose, content, › Project outputs peer reviewed and longer-term durations and delivery styles to best meet HSE's current and future business needs. outcomes evaluated. Quality of work subject to external scrutiny (science planning etc) and against Easier Access to Services Programme (EASe) EASe is one of HSE’s key programmes for government standards. improving customer contact – as well as following the central guidance and initiatives from the Contact Council. Contact will be explicitly designed and managed for the benefit of the customer and will provide a more coherent service from their point of view. To achieve this, HSE will take a co-ordinated view of any proposed changes to public contact arrangements. Improved services will mainly come on stream in late summer 2009 through re-tendered contact centre contracts – although incremental improvements will be made to existing contracts/services where feasible. In parallel HSE is participating in the promotion of Directgov and Businesslink as the primary sources of web-based information for citizens and businesses. 23
  • Health and Safety Executive Business Plan 2008/09 Finance Staffing HSE will prioritise its activities in accordance with HSE is aiming to maintain staff numbers at the the available resource to meet the challenging March 2008 level in 2008/09. In doing so we targets and key deliverables outlined in this plan. plan to: HSE will continue to make best use of resources › maintain the number of front-line inspectors; through a mixed intervention approach to › recruit nuclear inspectors; influence health and safety outcomes. › recruit a wide range of specialists and general Staffing numbers and resource spend inspectors; were reduced in 2007/08 to ensure HSE lived › recruit general staff including policy advisors within the available resource while maintaining at the Bootle HQ to replace leavers from our front-line activity. London HQ; and HSE’s financial strategy in the SR07 period › reduce corporate support staff by 5% in real includes maintaining front-line staffing numbers terms. while making further efficiencies in support functions. This will mean recruiting inspectors HSE’s staffing plans are set out in a separate and specialists to ensure HSE has the operational dedicated Workforce Plan. capability to deliver the planned outcomes. From 6 April 2008 HSE will move towards more Efficiency fully recovering its costs in the offshore oil and gas HSE has continued to improve efficiency and sector, onshore major hazard (COMAH) industries productivity. As an example, over the last five and gas transportation. It will also extend activities years HSE has increased the time spent by subject to cost recovery to include conventional inspectors in contact with dutyholders and other health and safety work at nuclear sites, larger key stakeholders by 33%. onshore major hazard (COMAH) sites and parts of HSE will run a structured efficiency gas transportation networks. programme over the SR07 period. This will HSE plans to spend £294 million gross in include improving operational productivity and 2008/09, which is a moderate real-term increase continuing to bear down on our overheads compared to the reduced spend (£274 million) including corporate support and estates. in 2007/08. HSE will shortly be reviewing the Nearly half of HSE staff already work record; Strategy (launched in 2004), which will determine a ‘Universal Work Recording’ project (UWR) is priorities and potentially redirect resources for aimed at extending this across the rest of HSE SR07 and beyond. The short/medium-term to help improve personal and organisational business planning and financial strategy will be performance management. realigned to the outcome of this review. A separate efficiency plan will detail what we will do in this area. 24
  • Health and Safety Executive Business Plan 2008/09 Figure 2 Proposed total administration budget allocation HSE proposed 2007/08 2008/09 budget £ million £ million 19% Occupational health and safety outcomes Administration 215 230 25% Major hazards outcomes expenditure 19% Enabling justice Programme 59 63 2% Support to Government expenditure 2% Public accountability 12% Estates Total gross 274 294 10% IT expenditure 11% Corporate support Income (58) (69) Net resource 216 225 Figure 3 Proposed total programme budget allocation 47% Occupational health and safety outcomes 18% Major hazards outcomes 25% Enabling justice 10% Overarching research 25
  • Health and Safety Executive Business Plan 2008/09 Further information HSE priced and free publications are available by mail order from HSE Books, PO Box 1999, Sudbury, Suffolk CO10 2WA Tel: 01787 881165 Fax: 01787 313995 Website: www.hsebooks.co.uk (HSE priced publications are also available from bookshops and free leaflets can be downloaded from HSE’s website: www.hse.gov.uk.) For information about health and safety ring HSE’s Infoline Tel: 0845 345 0055 Fax: 0845 408 9566 Textphone: 0845 408 9577 e-mail: hse.infoline@natbrit.com or write to HSE Information Services, Caerphilly Business Park, Caerphilly CF83 3GG. © Crown copyright This publication may be freely reproduced, except for advertising, endorsement or commercial purposes. First published 06/08. Please acknowledge the source as HSE. Printed and published by the Health and Safety Executive 06/08 C6 26