Evaluation of the Forklift Instability & Traffic
Management Project
# 979
July 2005 – June 2006
WORKSAFE VICTORIA
Manufacturing, Logistics and Agriculture Industries Program
July 2006
Report prepared by:
Wayne Skinner
Project Manager
and
Amber Stewart
Project Development Officer
Manufacturing, Logistics and Agriculture Industries Program
Contents
Contents __________________________________________________ 1
Executive Summary _________________________________________ 2
Purpose of Evaluation _______________________________________ 6
Project Overview ____________________________________________ 7
Activities, Results and Outcomes _____________________________ 10
Objective 1: Provide comprehensive information to decision makers on
how forklifts should be used at workplaces ________________________10
Objective 2: Minimise the risk of forklift tip-overs occurring in the
workplace ____________________________________________________14
Objective 3: Reduce commercial pressure for manufacturers and
suppliers of forklifts to “option out” safety devices __________________16
Objective 4: Creating a level playing field for employers that provide a safe
workplace in relation to forklift operations__________________________16
Objective 5: Develop a strategy to reduce forklift-related fatalities _____18
Other Achievements____________________________________________19
Discussion and Summary ___________________________________ 20
Program Recommendations _________________________________ 21
Appendix A _______________________________________________ 22
Forklift Instability and Traffic Management Marketing and Advertising
Campaign ____________________________________________________22
Appendix B __________________________ Error! Bookmark not defined.
Safety Awareness Forklift Newsletter _________ Error! Bookmark not defined.
PAGE 1
Executive Summary
The Forklift Safety program has run for 4 years, and has had a great impact in this time. The Forklift
Instability and Traffic Management project has been influential in providing more information to the
industry and improving the awareness of safety controls. The “Forklift Safety Reducing the Risk-Forklift
Instability” guidance material was launched during this project and a second edition also published.
Development and implementation of the Seatbelt Policy, accepted industry standards including 3 metre
rule and prohibited carrying of two tier loads, and the culture change in relation to safety controls shows
significant improvement. This project, as a combination of education, guidance material, field
inspections, seminars, stakeholder groups and policy development, is progress towards reducing forklift
fatalities and injuries. By using components of the program in other projects in 2006/07, there is
opportunity to build on past successes. This should be used in the next couple of years, to focus on
another aspect of forklift safety, and progress the industry further in improving its safety standards.
PAGE 2
Background
Forklift related incidents claimed 56 lives at Victorian workplaces in the period 1 January 1985 to 26
January 2006, including a recent fatality on 5 December 20051. Over half of these fatalities and a third of
forklift related injuries over this period resulted from pedestrians working or moving close to operating
forklifts. The fatality on 5 December 2005, involved a 54 year old male truck driver who was killed when
he was struck by a steel stillage which fell from a truck being loaded by a forklift.
A successful and comprehensive marketing campaign focussing on pedestrian safety around forklifts
was implemented during 2003, followed by a Pedestrian Forklift Safety Project (810). This project
benchmarked pedestrian safety by exclusion zones and barriers and if such measures were
implemented on 5 December 2005, the fatality involving the 54 year old truck driver would have been
avoided.
The next largest number of fatalities resulted from forklifts overturning. WorkCover data indicates that
overturning is identified in about 6% of reported injury claims and 17% of fatalities. Simple measures
such as stability controls and the use of seatbelts could have easily prevented these injuries and
fatalities. Despite the known inherent instability of forklifts, this does not always result in safe actions by
operators or in safe systems of work being applied at workplaces. To a large extent forklift operators
work in an isolated environment separated from essential information such as the weight of the load to
be lifted, the speed of travel, the remaining margin of stability, the safe lifting height and the load
capacity of any attachments. Critical user information about floor surfaces/slopes, tyre selection and
other factors that are known to manufacturers is not communicated effectively (if at all) at the point of
sale.
Forklift designers and manufacturers focus on producing a cost competitive, rugged, trouble free load
shifting device that can manoeuvre and stack loads in ‘tight’ areas. Additional equipment such as
stability aids, speed limiters, load weighing, dual wheels, interlocked seatbelts, and suspension seats
add cost to the forklift and are frequently ‘optioned out’ at the point of sale to reduce the purchase price.
1
Fatalities reported to WorkSafe Victoria, 30/6/06
PAGE 3
All forklifts used in Australia are manufactured overseas; however manufacturer’s representatives have
shown a willingness to listen, and act on, WorkSafe’s concerns regarding inherent safety risks in forklift
design. It is imperative to capitalise on this opportunity to educate employers, users and suppliers on
key aspects of safety and for manufacturers to build safety into all models and variations. As a first step
in this process the manufacturers have agreed to develop an industry code of conduct to moderate the
supply process.
The main driver of WorkCover claims relating to forklifts is pedestrians working or moving too close to
the forklift, and the next driver is forklifts overturning.
Mechanism of Injury
04/05 at June 2005
Other m echanism 6%
Falls, Trips and Slips
16%
Body stressing
38%
Hitting objects
8%
Being hit by m oving
object
32%
Source: VWA Standardised claims reported Jul 04 – Jun 05 as at 30 June 2005
PAGE 4
The number of forklift-related fatalities has been steady for the last few years at 2 fatalities. This
indicates that the Forklift program has had some impact, but there is still more work to do in preventing
fatalities.
Forklift-related Fatalities
6
No. of Fatalities
5
4
3
2
1
0
/85 /86 /87 /88 /89 /90 /91 /92 /93 /94 /95 /96 /97 /98 /99 /00 /02 /03 /04 /05 /06
84 985 986 987 988 989 990 991 992 993 994 995 996 997 998 999 001 002 003 004 005
19
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
2
2
2
2
2
Fatalities reported to WorkSafe Victoria, 30/6/06
PAGE 5
Purpose of Evaluation
The purpose of this evaluation is to report on the activities and initiatives of the program. This includes
measuring the performance of the project against the objectives, and also identifying the gaps,
opportunities and learnings gathered during the course of the project. This report will assess aspects of
the project that are able to be measured, in order to evaluate the effectiveness of the project, rather than
examine the aspects which cannot be measured. This evaluation will also outline any achievements and
provide recommendations for future work in this area.
The Forklift Instability and Traffic Management Project was established by the Manufacturing, Logistics
and Agriculture Industries Program to aid in the identification and prioritisation of key hazards, with the
aim of developing and implementing strategies to reduce and eliminate identified hazards and improve
health and safety performance in relation to the use of forklifts.
PAGE 6
Project Overview
The Forklift Instability and Traffic Management project is a continuation of the Pedestrian Forklift Safety
Project implemented in 2003. The objectives of this project started at a high level, however as the
project commenced, and the main issues arose, the scope of the project was further defined to focus on
seatbelts in forklifts, with the aim of reducing fatalities from forklift tip-overs.
Broadly, the project objectives were to:
 Provide comprehensive information to decision makers on how forklifts should be used at
workplaces.
 Minimise the risk of forklift tip-overs in the workplace
 Improve the culture of manufacturers and suppliers in providing safety options with forklifts
 Target employers not implementing safety mechanisms in relation to forklifts
 Develop a strategy to reduce forklift-related fatalities
 To create a shift in workplace culture in the wearing of seatbelts
The project focussed on the following forklift safety issues:
-
Design to improve stability
-
Supply, sale and lease of forklifts
-
System of work in the management of forklift operations
-
Competency of forklift operators
-
Design of workplaces to enhance the stability of forklifts
-
Operating surfaces that affect/enhance stability
-
Traffic Management
-
Installation and wearing of seatbelts
PAGE 7
The project was comprehensive in its consultation and information dissemination. It achieved a strong
culture change in the industry, however there is still more work needed to further reduce the risk of
fatalities and injuries. The mechanism of injury relating to forklift claims was largely Body Stressing,
followed closely by Being Hit by Moving Object, both of which indicate the need for further education and
controls on traffic management and forklift tip-overs.
Mechanism of Injury
05/06 at June 2006
Other m echanism
5%
Falls, Trips and Slips
15%
Hitting objects
9%
Body Stressing
39%
Being hit by m oving
object
32%
Source: VWA standardised claims reported Jul 05 – Jun 06 as at 30 June 2006
PAGE 8
Goals and Objectives
The goal of the Forklift Instability and Traffic Management project was to reduce the number of claims
and fatalities relating to forklifts through:
1. Providing comprehensive information on why forklift tip-overs occur and how to minimise the risk
of forklift tip-over, to people making decisions that impact on the design, purchase, supply or
operation of forklifts.
2. Minimise the risk of forklift tip-overs occurring in the workplace.
3. Reduce commercial pressure for manufacturers and suppliers of forklifts to “option out” safety
devices.
4. Creating a level playing field for employers that provide a safe workplace in relation to forklift
operations.
5. Develop a strategy to reduce forklift-related fatalities.
PAGE 9
Activities, Results and Outcomes
Objective 1:
Provide comprehensive information to decision makers on how
forklifts should be used at workplaces
Measures:
 Guidance material developed and disseminated to target audience on time
The “Forklift Safety Reducing the Risk-Forklift Instability” guidance material was
launched by the Minister for WorkCover, Mr John Lenders at the Monash
University Accident Research Centre on 22nd June 2005.
A 2nd Edition of the “Forklift Safety Reducing the Risk-Forklift Instability” guidance
was published in April 2006 after consultation with stakeholders. The revised
guidance material encompasses and consolidates pedestrian safety learnings from
the previous campaign in a single safety guide.
A marketing campaign was conducted commencing in September 2005, promoting
the wearing of seatbelts in forklifts. Advertisements were placed in metropolitan
and country newspapers. (See Appendix A) In addition, external stakeholders ran
the advertising in their bulletins and newsletters.
Further to this campaign, a direct mail out of 13,500 Slider Brochures “Why should
Forklift Drivers Wear Seatbelts” was completed, and 3500 “Forklift Safety
Reducing the Risk-Forklift Instability” publications were also sent out2.
A key indicator of the impact of this guidance is the exposure to the target
audience, which can be measured by the number of requests received for the
publication:
2
Minton, Rachael. WorkSafe Victoria Marketing and Communications, 30/6/06
PAGE 10
Forklift Safety Reducing the Risk – Forklift Instability, Publication Requests
2005
July
August
September
October
November
December
Total
3482
3256
6515
6377
2792
1528
24,310
Source: Anderson, Michelle. Salmat Fulfilment Services, 16/1/06
Forklift Safety Reducing the Risk – Forklift Instability, Publication Downloads
2005
July
August
September
October
November
December
Total
1829
1138
2860
1901
1521
948
10,197
Source: Gusset, Kylie. WorkSafe Victoria Web Management. 9/1/06
The total number of publications supplied from July to December 2005 was
34,507.
Forklift Safety presentations were held during WorkSafe Week 2005 at Melbourne
Museum and Warrnambool and included a number of presentations by regional
staff at Footscray, Geelong and Bendigo.
.
To ensure a consistent approach to the Forklift Instability Project, all stakeholders
were briefed on the project, its purpose, objectives and the guidance material,
including ongoing consultation:
- May - June 2005 – External Stakeholder consultation
- 17th June 2005 – VWA Advisory Service briefing
- July, August, September, December 2005 – Field Reference Group of MLA
Inspectors
 Number of information seminars held across Victoria
Six seminars were planned across the state to inform the target audience of the
new guidance material. This objective was exceeded with fourteen workshops
conducted between February and June 2006. These workshops provided a strong
insight into the state of the industry.
Overall the feedback from these workshops was very positive. The most useful
aspects of the workshops included3:
- Content of guest speaker
- Information on data plates
3
Ausfork Pty. Ltd. Report for Forklift Safety Forums for 2006. 1/8/06.
PAGE 11
- Information on WorkSafe expectations
- Opportunity to participate in discussion forum and address concerns
- Showbags with information on new technology
These information seminars also recognised a desire in industry for continued
forums and group discussions, also for further information to be provided
regularly on new technology, proactive policy and procedures and what training is
necessary for all staff.
The following workshops were conducted over four months with 665 attendees:
Month
Location
Attendees
Month
Location
Attendees
February
Geelong
40
May
Bendigo
30
Wangaratta
80
Melbourne
20
Dandenong
120
Mulgrave
60
Warrnambool
40
Ballarat
40
March
Preston
40
Mildura
50
April
Melbourne
40
Shepparton
45
Traralgon
20
Melbourne
40
June
The workshops/forums were very effective in supporting the guidance material as
well as the project initiatives, and it would be beneficial to continue industry
information seminars such as these.
PAGE 12
 Use of the guidance material at workplaces
The FOCUS Report card results demonstrate a significant improvement in the
awareness of the guidance material, from first visit to followup visits to the
workplaces.
The question asked: “Was the workplace aware of the Forklift Safety
Reducing the Risk Forklift Instability guidance publication?”
FOCUS Report Card - Question 16
80
First Visit
Followup Visit
70
60
No. Responses
50
40
30
20
10
0
Yes
No
Source: VWA Fieldlink FOCUS Report Card data, as at 30 June 2006
 Briefings on guidance material held for Registered Training Organisations
(This is a late measure from the previous project, which was achieved by during
this project)
The National Register of Assessors Association provided 2 briefings, run by Lou
Kapeller of the Licensing Branch, Victorian WorkCover Authority.
PAGE 13
Objective 2:
Minimise the risk of forklift tip-overs occurring in the workplace
Measures:
 70% of forklift operators understand the load capacity of their forklift, and
forklifts observed are correctly fitted with load weighing devices, or work
processes are used that ensure weights of loads are known.
The capacity of this project made it difficult to use this measure effectively, as it
could only be taken from those workplaces observed by inspectors. The FOCUS
Report card results demonstrate a substantial shift from “some extent” to
“considerable’ between first and follow up visits for the question:
“To what extent has stability enhancing features been included in the
purchase/lease of forklifts?”
FOCUS Report Card - Question 24
50
First Visit
Followup Visit
45
40
No. Responses
35
30
25
20
15
10
5
0
No Extent
Some Extent
Considerable
Great Extent
Source: VWA Fieldlink FOCUS Report Card data, as at 30 June 2006
A number of issues were workshopped during the Forklift Seminars held across the
state. One of these which received considerable attention related to load capacity.
“Are forklift operators aware of the load capacity of their forklifts, do operators have an
understanding of load capacity plates, and are correct weights identified”. There was
a substantial response in the negative to these issues, showing a lack of awareness
of the safety controls that should be in place. This has revealed an opportunity for
further work in this area.
PAGE 14
 80% of forklifts sold or leased in Victoria have the technology to control the
risk of tip-over
The target of 80% was not reached, however there have been significant advances
made in technology and culture, and the development of controls put in place
throughout the industry.
- Toyota has standard stability enhancing features on their series 7 forklift, other
manufacturers have developed some stability aids including after market
technology.
- Toyota has developed a Retro-Fit Kit for seatbelts in forklifts, which is widely
available.
- Other companies have also implemented similar initiatives, to include seatbelts
in all their forklifts.
According to the market share of these companies, this has reached approximately
40% of the industry, so there is still some way to go to effectively control the risk of tipover in all Victorian workplaces.
 60% of workplaces ensure that forklift operators use operator restraints at all
times
This was measured by observations of inspectors at the workplaces visited. The
FOCUS Report card question was: “At the time of visit, what proportion of
counterbalance forklift operators were observed wearing seatbelts?”
FOCUS Report Card - Question 21
45
First Visit
Followup Visit
40
35
No. Responses
30
25
20
15
10
5
0
No Extent
Some Extent
Considerable
Great Extent
Source: VWA Fieldlink FOCUS Report Card data, as at 30 June 2006
Overall, 336 first visits recorded more than 50% of answers as “considerable” and
“great extent”. The improvement at the workplaces that received followup visits was
PAGE 15
significant for both “considerable” (increased 110%) and “great extent” (increased
52%). This objective became a focus of the project, as it was an area that a significant
impact could be made in.
August 2005 saw the development and implementation of a Seat Belt Policy, and the
Prohibition of Carrying Loads Two Tiers High.
Objective 3:
Reduce commercial pressure for manufacturers and suppliers
of forklifts to “option out” safety devices
Measures:
 Forklift suppliers develop an “Industry Code of Conduct” that self regulates the
installation of safety devices
An initial Code of Practice was developed by the industry, with a major role played by
the Industrial Truck Manufacturer’s Association. It was also agreed to set a margin of
stability relating to forklift loads.
 90% of suppliers adopt Code of Conduct
An agreement was reached with 95% of forklift suppliers that they would adopt the
Code of Practice, and implement it.
Objective 4:
Creating a level playing field for employers that provide a safe
workplace in relation to forklift operations
Measures:
 Field inspection activities completed targeting forklift instability issues
The field visit target was far exceeded for this project, with 1771 visits completed. A
total of 336 FOCUS Report Cards were completed for First Visits and 91 for Followup
Visits. There is a gap here of report cards not being completed for some workplaces,
or not for Followup Visits, however this may have been deemed unnecessary by the
inspector for a variety of reasons. The requirement of report cards to be completed
needs to be reviewed.
In September 2005 a traffic light system of “what compliance looks like” was
developed as part of the tool kit to provide guidance for field staff during their
inspections. This improved the capability of field staff to effectively implement the
project.
PAGE 16
968 Improvement Notices were issued under this project and 59 Prohibition Notices.
The large proportion (54%) of Improvement Notices were issued against the
Occupational Health & Safety (Plant) Regulations 1995.
Improvement Notices against Regulations
Regulation
Dangerous Goods (Storage and Handling)
Regulations 2000
Occupational Health and Safety (Certification of Plant
Users and Operators) Regulations 1994
Occupational Health and Safety (Hazardous
Substances) Regulations 1999
Occupational Health and Safety (Manual Handling)
Regulations 1999
Occupational Health and Safety (Noise) Regulations
2004
Occupational Health and Safety (Plant) Regulations
1995
Occupational Health and Safety (Prevention of Falls)
Regulations 2003
OHS Act 2004
Improvement
Notice
56
%
5.8%
3
0.3%
8
0.8%
20
2.1%
3
0.3%
522
53.9%
22
334
2.3%
34.5%
 Strategic prosecutions used to focus awareness on the imperative for change
Where necessary, organisations were recommended for investigation. LSID have
undertaken 22 comprehensive investigations from January 2003 to June 2006,
involving 5 deaths and 13 injuries. Three organisations have been prosecuted, five
have been fined and two are currently before the courts. This objective was achieved
and it is imperative for these to take place in order to raise the awareness of the
importance of the safety issues, and the controls available in relation to the use of
forklifts.
PAGE 17
Objective 5:
Develop a strategy to reduce forklift-related fatalities
Measures:
 Determine cause of fatalities, evaluate solutions and put in place a course of
action
Extensive consultation of industry stakeholders, and internal stakeholders, along with
further analysis, revealed the main cause of forklift-related fatalities to be tip-overs,
with the operator being trapped under the forklift.
The solutions were workshopped, and further consultation delivered the solution of
operators wearing seatbelts. This initiative became the focus of the project, and also a
marketing and advertising campaign was developed to compel forklift operators to
wear seatbelts.
Including the above, the following initiatives developed under this strategy were:
1. Forklift drivers wearing seatbelts
2. Prohibit the carrying of 2 tier loads
3. 3 metre rule (regarding pedestrians)
Through consultation, issues discussed at the workshops, and the Coroner’s
recommendations, solutions and industry best practice were identified, and then a
benchmark was established. These issues also built on the previous forklift campaign.
This strategy has been successful in raising the awareness of forklift safety issues,
and implementing controls to reduce fatalities, however it is still important that the
hierarchy of controls is used. Over the past 20 years, 56 fatalities have been reported
relating to forklifts. 30 of these involved pedestrians, and 10 of these fatalities involved
forklifts tipping and crushing the operator.
56 Reported Fatalities involving Forklift Trucks 1 Jan 1985 - 26 Jan 2006
Overcome by exhaust fumes;
1
Fell from forklift, fork-arms or
load; 8
Pedestrian crushed by falling
loads; 16
Operator crushed by
unexpected movement of
forklift; 7
Pedestrian struck by
travelling forklift ; 7
Operator crushed by forklift
in tipover/rollover; 10
Pedestrian crushed by
manoeuvring forklift; 7
Source Fatalities reported to WorkSafe Victoria
PAGE 18
Other Achievements
The success of this project is demonstrated by the amount of external interest that
has been expressed in the project and in implementing similar initiatives in other
jurisdictions. Areas that have shown interest include:
- WorkSafe Northern Territory – currently running a forklift project and
found the Forklift Safety Reducing the Risk guidance useful.
- Work Place Health & Safety Queensland have plans to initiate a forklift
safety project in 06/07, and are interested in adopting WorkSafe Victoria’s
strategy in development and implementation.
- SafeWork South Australia has shown interest in following a similar
strategy for a forklift safety campaign.
- WorkSafe BC Canada has also shown interest in this project
An appeal was put before VCAT in May 2006, regarding the wearing of seatbelts in
forklifts. The hearing is pending, however WorkSafe are confident based on industry
adoption to wearing seatbelts and through the demonstration of the work of this
project and policy development regarding wearing of seatbelts in forklifts. (See
Appendix B – Forklift Safety Awareness Newsletter)
PAGE 19
Discussion and Summary
The Forklift Instability and Traffic Management project has several achievements, and some areas that
require more attention. The major culture shift of the industry has been a significant achievement,
demonstrated by:
-
Policy implemented for the wearing of seatbelts in forklifts
-
Prohibition of carrying two tier loads in a forward direction obscuring
the view of the operator
-
3 metre pedestrian separation rule has drawn a line in the sand as far
as forklift and pedestrian safety is concerned.
WorkSafe Victoria is a leader in forklift safety; this is evident by the amount of interest shown from other
jurisdictions. It is important to continue our development and build on our successes to date in this field.
Components of this project are being used in other Manufacturing, Logistics and Agriculture projects
operating in 2006/07.
Sadly, as the Forklift Instability and Traffic Management comes to an end, a 21 year old male is on life
support following a forklift incident on 14 July 2006. Another forklift operator, 28 years old was involved
in an incident on 15 September 2005. This incident was only days before WorkSafe’s media advertising
campaign “forklifts tip, seatbelts save” commenced. It is alleged the forklift operator (who had just
returned from leave for the birth of his first child) was operating a forklift that was signed out, not to be
used in a section of the premises where it had struck a beam the previous day. The 28 year old
operator’s forklift struck the same beam, he was ejected and crushed beneath the forklift. He remained
in hospital where he died on 20 July 2006. He was not wearing a seatbelt.
PAGE 20
Program Recommendations
1. The marketing and advertising campaign run under this project was very successful, it is
important to build on this intelligence. The proposed forklift marketing campaign for
2006 should proceed.
2. There is an opportunity to work further in the area of forklift loads, educating the
operators, and ensuring capacity is clearly marked and appropriate to the forklift in use.
It is important to acknowledge the lack of awareness in the industry and move to
improve it.
3. Only 40% of the industry has implemented processes to control the risk of tip overs, this
identifies an opportunity to improve the technology available on forklifts sold or leased in
Victoria. A focus on suppliers implementing controls should be employed.
4. FOCUS Report cards are not always completed for each first and followup visit. Reassessment of the value of the FOCUS Report card, looking at the option of standard
questions across all projects should be examined.
5. To improve data gathering and the evaluation process, regional resources can be used
to survey organisations, providing more comprehensive information.
PAGE 21
Appendix A
Forklift Instability and Traffic Management Marketing and Advertising
Campaign
Press Ad
Slider Brochure
PAGE 22