Fall hazards

Falls are the number-one cause of critical injuries and deaths of workers at construction sites in Ontario.

Workers can be at increased risk of falling due to:

  • missing protective devices (e.g., guardrails)
  • unsuitable and/or poorly maintained guardrails and covers
  • unguarded openings in floors, work surfaces or walls of buildings or other structures, including skylights in existing roof structures
  • lack of appropriate personal protective equipment (e.g., equipment unavailable, unused or misused)
  • equipment that is misused or in poor condition (e.g., ladders, scaffolds, elevating work platforms or suspended access equipment)
  • poor work practices (e.g., unclear job procedures, lack of training or workers rushing to meet deadlines)
  • improper configuration of travel restraint or the use of rope grabs not in accordance with manufacturer’s instructions
  • poor lighting, slippery surfaces, inadequate “housekeeping” (e.g., a messy, cluttered work area) and other deficient working conditions.

Appropriate methods for controlling these and other hazards must be included in construction site health and safety programs.

The Ministry of Labour Construction Health and Safety Program (CHSP), along with the Ministry of Labour Prevention Division and the Infrastructure Health and Safety Association (IHSA) will continue to collaborate to address the hazards associated with all fall-from-height hazards, including re-roofing activities and the underground economy.

Preventing falls

The regulatory requirements regarding fall protection on a construction project are set out in sections 26 to 26.9 of O. Reg. 213/91 – Construction Projects.

Some methods for controlling hazards leading to falls include:

  • adequate supervision, inspection and work planning
  • engineering controls
  • personal protective equipment
  • housekeeping
  • use of appropriate and adequate administrative controls.

Guardrail systems (as opposed to other methods of fall protection – see below) must be used to prevent falls, unless it is not reasonably possible to install one. Constructors and employers must install guardrails (or take other protective measures) if workers are at risk of falling:

  • more than three metres
  • more than 1.2 metres if the work area is used as a path for a wheelbarrow or similar equipment
  • into operating machinery
  • into water or other liquids
  • into or onto a hazardous substance or object
  • through an opening on a work surface.

A guardrail system must also be used if a worker is exposed to a fall of 2.4 metres or more and has access to the open side of a:

  • floor, including a mezzanine or balcony floor
  • bridge surface
  • roof while formwork is in place
  • scaffold platform or other work platform, runway or ramp.

If it is not reasonably possible to install a guardrail system, a worker must be protected from the fall hazard by one of the following under the Regulation for Construction Projects:

  • a travel restraint system that meets the requirements of section 26.4
  • a fall-restricting system that meets the requirements of section 26.5  (the system shall be designed to limit a worker’s free fall to 0.6 metres)
  • a safety net that meets the requirements of section 26.8 (This also needs to be designed, tested and installed in accordance with American National Standards Institute (ANSI) Standard A10.11-2010, Safety Requirements for Personnel and Debris Nets)
  • a fall arrest system that meets the requirements of section 26.6, including:
  • a full body harness
    • a lanyard with a shock absorber (unless using a shock absorber could cause a falling worker to hit the ground, next level below or any objects below the work area)
    • a system that must be attached by a lifeline or by the lanyard to an adequate, independent fixed support that meets the requirements of section 26.7 and must limit a falling worker to a peak fall arrest force no greater than eight kilonewtons of force.

The components of any method used for fall protection must meet the requirements of any applicable National Standards of Canada (CSA) standard listed in subsection 26.1(3).

In 2015 the ministry implemented a workplace training standard to prevent falls and improve safety for workers who work at heights. The training requirement is for workers on construction projects who use any of the following methods of fall protection:

  • travel restraint systems
  • fall restricting systems
  • fall arrest systems
  • safety nets
  • work belts or safety belts.

The current training requirements mean that workers must be adequately trained and given instruction on the proper use of the fall protection system by a 'competent person' who is:

  • qualified through knowledge, training and experience to organize the work and its performance
  • familiar with the Occupational Health and Safety Act (OHSA) and the regulations that apply to the work being performed
  • aware of any actual or potential danger to health and safety in the workplace.

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Occupational illness and diseases

Occupational illness normally develops over a period of time because of workplace conditions. Such conditions might include exposure to disease-causing bacteria and viruses (for example), or to chemicals or dust (i.e. silica dust).

Under the Occupational Health and Safety Act, occupational illness is defined as a condition that results from exposure in a workplace to a physical, chemical or biological agent to the extent that the normal physiological mechanisms are affected and the health of the worker is impaired. Such conditions might include exposure to carbon monoxide.

The Construction Health and Safety Program will continue its commitment to address occupational health hazards that may lead to occupational illness and disease. Within Ontario’s construction industry, occupational diseases have caused the deaths of more workers or former workers in the past 10 years than traumatic occupational injuries. Most of these diseases recognized as occupational illness were caused by past exposure to asbestos. Non-fatal diseases related to construction, such as noise-induced hearing loss, affect hundreds of construction workers in Ontario every year.

Long recognized as a serious hazard, noise exposure is one of the most widespread health hazards in construction responsible for a significant number of noise-induced hearing loss Workplace Safety and Insurance Board lost-time injury claims. In 2016, Ontario’s occupational exposure limits for noise were extended to apply to construction projects. Employers in the industry are required to take every reasonable precaution in the circumstances for the protection of a worker. Occupational exposure limits for sound may be considered when determining whether a construction employer has met that general obligation. Ministry inspectors and hygienists will focus on ensuring that construction workers are protected from excessive noise levels by ensuring that workers are provided with appropriate hearing protection in accordance with section 21 of O. Reg. 213/91 – Construction Projects. Employers are encouraged to voluntarily develop a hearing conservation program that includes pre-employment and periodic audiometric testing to detect hearing changes before they occur.

Another long recognized serious health hazard is asbestos. Under the OHSA, asbestos is prescribed as a designated substance and has two designated substance regulations. Regulation 490/09 – Designated Substances is applicable to industrial and mining establishments and Regulation 278/05 – Designated Substance - Asbestos on Construction Projects and in Buildings and Repair Operations is applicable to construction projects and in building and repair operations.

Asbestos-related diseases develop slowly over time and symptoms are not usually noticed by affected workers until the disease is at an advanced stage. To permit earlier detection of such diseases, the regulation prescribes medical examinations for workers who work in Type 2 or Type 3 operations. Under this program, employers are required to report the number of hours each employee works on Type 2 or Type 3 operations to the Provincial Physician of the Ministry of Labour. The Provincial Physician keeps track of each worker’s accumulated exposure and may recommend that workers undergo the prescribed medical examinations. Workers who are listed in the register may voluntarily undergo the prescribed medical examinations recommended by the Provincial Physician.

Infectious diseases acquired from biological agents present in the workplaces, including biological agents generated by human waste, are “occupational illnesses.” The provision of adequate toilet and clean-up facilities, proper removal and disposal of waste, and the provision of hot and cold running water and soap is essential to protecting workers against infectious diseases and occupational illnesses. The ministry recognizes the importance of proper hand hygiene in the prevention of infectious diseases. It also recognizes that inadequate sanitation (provision of facilities and services for the safe removal and disposal of human waste) presents a health risk to humans.

During the course of regular inspections at Ontario construction sites, ministry inspectors will continue to check for compliance with section 31 of the Occupational Health and Safety Act – that suppliers provide adequate facilities – and section 29 of Ontario Regulation 213/91 – Construction Projects to make certain that adequate toilets and clean-up facilities are provided at every project, and that they are properly serviced and sanitized.

In co-operation with the ministry’s Specialized and Professional Services unit, ministry inspectors will check compliance with the Occupational Health and Safety Act and its regulations including O. Reg. 213/91 – Construction Projects, O. Reg. 278/05 – Asbestos on Construction Projects and in Buildings and Repair Operations and Regulation 860 – Workplace Hazardous Materials Information System where controlled substances are to be used at a project.

The Construction Health and Safety Program will ensure that its field operations are positioned to meet the demands associated with Ontario’s occupational exposure limits (OELs) in construction, the new Noise Regulation, and the increased recognition of occupational illness and disease.

Some general duties of workplace parties regarding occupational hygiene

It is the responsibility of constructors, suppliers of equipment, employers and supervisors to ensure that all workplace parties comply with the provisions of the Occupational Health and Safety Act in order to protect workers from hazards in the workplace, including the protection of workers from infectious diseases due to inadequate sanitation on construction projects.

Constructors

Constructors must ensure that, in accordance with section 29 of O. Reg. 213/91 – Construction Projects, toilets, urinals and clean-up facilities are provided or arranged for workers before work starts at a project and that there is reasonable access to them.

Suppliers

Suppliers have a duty under section 31 of the OHSA, to provide toilets and clean-up facilities that are in good condition and that comply with section 29.1 of the Construction Projects Regulation.

Employers

Employers have duties under the Occupational Health and Safety Act to ensure that every reasonable precaution in the circumstances is taken for the protection of workers [OHSA clause 25(2)(h)].

Employers must report all occupational diseases to the Ministry of Labour and the workplace’s Joint Health and Safety Committee as required by subsection 52(2) of the OHSA.

Employers are also required, by clause 25(2)(a) of the OHSA to provide information, instruction and supervision to a worker to protect the health or safety of the worker. This includes, and is not limited to, information and instruction and supervision about infectious diseases and associated hazards of health risks.

Supervisors

Supervisors must ensure on behalf of their employer that the construction projects have adequate facilities and they are adequately serviced and sanitized.

Supervisors must advise workers on the dangers to health and safety and the hazards, health risks and infectious diseases associated with poor hand hygiene and poor sanitation of toilet facilities.

Workers

Workers must follow safe practices and good personal hygiene and report any unsafe condition to their employer.

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“Struck-by” hazards

Workers can be at risk of hazards when working around vehicles and mobile construction equipment at construction projects. These hazards can result in serious injuries and even death to workers. Workers can be at risk at construction sites due to:

  • construction projects not being planned and organized to avoid or reduce reversing vehicles
  • inadequately trained signalers and equipment operators
  • obstructed views by equipment operators
  • lack of conspicuous warning signs in areas where vehicles may be driven in reverse
  • lack of high visibility clothing or wearing clothing that is worn out.

“Struck-by” incidents can be prevented by ensuring that:

  • trained signalers and competent equipment operators are in place, as required
  • construction projects are planned and organized to eliminate or reduce the reverse operation of vehicles and construction equipment
  • personal protective equipment (PPE), including high visibility clothing, is worn by workers as required.

Employers are responsible for protecting workers from hazards arising from the operation of vehicles and mobile construction equipment at construction projects.

Some of the hazards workers could be exposed to include:

  • being struck by or run over by vehicles and mobile construction equipment
  • being crushed between equipment and other objects
  • being struck by material moved by construction equipment.

Some general duties of workplace parties

Employers

Employers have a number of duties and responsibilities under the Occupational Health and Safety Act and O. Reg. 213/91 – Construction Projects. Below are some examples of employers’ duties:

  • Provide information, instruction and supervision to workers to protect their health and safety, including on safe work policies and procedures specific to the workplace and type of work the workers will perform [OHSA section 25(2)(a)].
  • Ensure equipment operators and signalers are competent workers (O. Reg. 213/91 sections 96 and 106].
  • Take every precaution reasonable in the circumstances for the protection of workers [OHSA section 25(2)(h)].
  • Ensure prescribed measures and procedures are carried out in the workplace [OHSA clause 25(1)(c)].
  • Ensure equipment, materials and protective devices required by the regulations are provided and maintained in good condition [OHSA clauses 25(1)(a) and (b)].
  • Provide assistance to, and co-operate with, the workplace’s Joint Health and Safety Committee and/or a health and safety representative [OHSA subsections 9(29) and 8(9)].
  • Prepare and review, at least annually, a written occupational health and safety policy for the workplace, and develop and maintain a program to implement that policy [OHSA clause 25(2)(j)].
  • Post a copy of the OHSA in the workplace [OHSA clause 25(2)(k)].

Supervisors

Below are some examples of supervisors’ duties:

  • Ensure workers comply with the OHSA and its regulations.
  • Ensure any equipment, protective devices or clothing required by the employer is used and/or worn by workers [OHSA clause 27(1)(a)].
  • Advise workers of any potential or actual health or safety dangers known by the supervisor [OHSA clause 27(2)(a)].
  • Where prescribed, provide workers with written instructions about measures and procedures to be taken for workers’ protection [OHSA clause 27(2)(b)].
  • Take every precaution reasonable in the circumstances for the protection of workers [OHSA clause 27(2)(c)].

Workers

Below are some examples of workers’ duties:

  • Wear appropriate personal protective equipment [OHSA clause 28(1)(b)].
  • Use or operate equipment in a safe manner [OHSA clause 28(2)(b)].
  • Report any defects in equipment to the worker’s supervisor or employer [OHSA clause 28(1)(c)].
  • Work in compliance with the OHSA and its regulations [OHSA clause 28(1)(a)].
  • Report any known workplace hazards or OHSA violations to the worker’s supervisor or employer [OHSA clause 28(1)(d)].
  • Understand and know workers’ OHSA rights, including the right to refuse unsafe work [OHSA clauses 43(3)(a), (b) and (c)].

Protecting workers

Employers, supervisors and trainers should encourage workers to communicate any questions or concerns they may have about vehicle and mobile equipment hazards. Supervisors or others involved in training workers should be familiar with any health and safety concerns faced by the workers.

Resources

Heavy equipment operation

Workers are at risk of injuries or even death if hazards exist when operating, maintaining or working around heavy equipment at construction projects. Incidents can be prevented by ensuring heavy equipment is:

  • properly operated and maintained
  • used as per manufacturers’ operating manuals
  • equipped with readily available manufacturers’ operating manuals
  • operated by competent workers with a clear view of the pathway for the equipment or load
  • operated with the help of a competent signaler who does not perform any other work while signaling
  • in compliance with all applicable regulatory requirements, including any required National Standards of Canada standards
  • in compliance with all applicable requirements in Regulation 856 – Roll-Over Protective Structures.

Employers are responsible for protecting workers from hazards involving operation of vehicles and mobile construction equipment at construction projects. Hazards include workers being:

  • struck by moving equipment
  • crushed between equipment and other objects
  • subjected to electrical contact while operating a vehicle or equipment
  • struck by an inadequately secured load while being lifted or moved
  • struck or crushed by equipment tipping over.

Some general duties of workplace parties

Constructors, employers, supervisors and workers have a number of duties and responsibilities under the Occupational Health and Safety Act (OHSA) and O. Reg. 213/91 – Construction Projects.

Constructors

Constructors’ duties and responsibilities include:

  • planning and organizing projects to avoid or reduce the reversing of equipment, machines and vehicles [O. Reg. 213/91 section 104]
  • ensuring operators of vehicles, machines or equipment on a project are assisted by a signaler if the equipment operator’s view of the intended pathway is limited or obstructed, or if a person could be endangered by the vehicle, machine or equipment or by its load [O. Reg. 213/91 section 103]
  • ensuring workers wear high visibility clothing if they are exposed to vehicle traffic [O. Reg. 213/91 section 69]
  • establishing written procedures to be followed at the project in an emergency, reviewing those procedures with the project’s Joint Health and Safety Committee (JHSC) or health and safety representative (HSR) (whichever applies), and ensuring those procedures are followed in an emergency [O. Reg. 213/91 section 17]
  • ensuring workers’ health and safety is protected [OHSA clause 23(1)(c)].

Employers

Employers’ duties and responsibilities include:

  • providing information, instruction and supervision to workers to protect their health and safety [OHSA clause 25(2)(a)]
  • ensuring vehicle operators and signalers are competent and that a signaler does not perform any other work while signaling [O. Reg. 213/91 sections 96 and 106]
  • taking every reasonable precaution in the circumstances to protect workers [OHSA clause 25(2)(h)]
  • ensuring equipment is operated and maintained as per manufacturer’s instructions [O. Reg. 213/91 section 93]
  • ensuring appointed supervisors are competent [OHSA clause 25(2)(c)]
  • ensuring required measures and procedures are carried out in the workplace [OHSA section 25(1)(c)]
  • ensuring required equipment, materials and protective devices are provided and maintained in good condition [OHSA clauses 25(1)(a) and (b)].

Supervisors

Supervisors’ duties and responsibilities include:

  • ensuring workers work in the manner and with the protective devices, measures and procedures required by the OHSA and its regulations [OHSA clause 27(1)(a)]
  • ensuring any equipment, protective devices or clothing required by the employer is worn/used by workers [OHSA clause 27(1)(b)]
  • advising workers of any potential or actual health or safety dangers known by the supervisor [OHSA clause 27(2)(a)]
  • providing workers with any prescribed written instructions about measures and procedures to be taken for the workers’ protection [OHSA clause 27(2)(b)]
  • taking every reasonable precaution in the circumstances for workers’ protection [OHSA clause 27(2)(c)]
  • supervising workers’ work at all times either personally or by having a competent assistant do so personally [O. Reg. 213/91 section 14]
  • inspecting, at least once a week or more frequently, all machinery and equipment, communication systems and means of access and egress (entry and exit) at the project to ensure no worker is endangered [O. Reg. 213/91 section 14].

Workers

Workers’ duties include:

  • wearing appropriate personal protective equipment [OHSA clause 28(1)(b)]
  • using/operating equipment in a safe manner [OHSA clause 28(2)(b)]
  • reporting any defects in equipment to your supervisor or employer [OHSA clause 28(1)(c)]
  • working in compliance with the OHSA and its regulations [OHSA clause 28(1)(a)]
  • reporting any known workplace hazards or OHSA violations to your supervisor or employer [OHSA clause 28(1)(d)]
  • knowing your OHSA rights, including the right to refuse unsafe work [OHSA clauses 43(3)(a), (b) and (c)].

Protecting workers

Employers, supervisors and trainers should encourage workers to communicate any questions or concerns they may have about equipment hazards. Supervisors or others involved in training workers should be familiar with any health and safety concerns affecting the workers.

Resources

Ergonomics

Manual materials handling is a common task for workers in many workplaces. Manual handling can expose workers to increased hazards resulting in musculoskeletal disorders (MSDs).

MSDs are injuries and disorders of the musculoskeletal system. They may be caused or aggravated by various hazards or risk factors in the workplace such as force, fixed or awkward postures, and repetition.

MSDs have been related to various workplace risk factors, including, but not limited to:

  • repetitive, forceful or prolonged exertions
  • frequent or heavy lifting, pushing or pulling, or carrying of objects
  • fixed or awkward work postures
  • contact stress
  • local or whole-body vibration
  • cold temperatures
  • work organization (e.g., work-recovery cycles, task variability, and work rate).

Preventing MSDs needs to be a key part of every workplace health and safety program. In safe and healthy workplaces, employers:

  • identify and assess job-related MSD hazards
  • put in place controls to reduce workers’ exposure to MSD hazards
  • advise and train workers about MSD hazards in their job and workplace
  • encourage workers to participate in their workplace’s health and safety program through early reporting of MSD symptoms or concerns to their employer/supervisor
  • follow up to ensure preventative measures are working.

Ministry of Labour inspectors take enforcement action as appropriate if they find violations of the OHSA and its regulations. Although there is no specific requirement under the Occupational Health and Safety Act (OHSA) or its regulations to address ergonomic issues, employers have a general duty under OHSA clause 25(2)(h) to take reasonable precautions to protect workers from hazards that can lead to MSDs.

Ministry inspectors and ergonomists issue orders under the general duty clause of the OHSA for ergonomic assessments and related preventive measures, such as orders for training workers on proper body mechanics and lifting techniques, and also issue orders under regulation requirements, including manual materials handling and lifting.

Priority areas

Inspectors check for MSD-related hazards, including:

  • unsafe lifting, lowering, pushing, pulling and carrying of materials
  • obstructions along routes of access and egress and at work locations
  • poor housekeeping and improper storage of materials
  • unsafe use of ladders and lack of adequate worker training
  • poor maintenance of vehicles, machinery, and equipment that could result in increased physical demands, and
  • inappropriate use of equipment (such as boxes being used as platforms) by workers positioning themselves for overhead work.

MSD prevention requires a multi-faceted approach. Workplace parties need to identify MSD issues early to allow for effective implementation of prevention strategies. Senior management that embraces a culture of healthy and safe workplaces is essential in leading others and instilling a positive approach. Good health and safety performance is good business. Another integral part of prevention involves designers and manufacturers of tools, equipment and work processes that will be used in the workplace.

Resources