Avalanche Safety Management Manual for DOC Staff Working in Avalanche Terrain

Contents

Contents

Introduction

Consultation

Hazardous areas

Methods for managing staff safety

Flow chart

Avalanche Terrain Exposure Scale (ATES)

Applying ATES

Staff Competency requirements to work in avalanche terrain

Working in Complex terrain

Working in controlled avalanche terrain

Danger levels

Peer work groups and looking after others

Skill/Competency levels used for working in avalanche terrain

Minimum staff numbers

Equipment guidelines

Site Based Options

Safety Plans

Emergency Plan

Incident Investigation

Appendix 1

Avalanche Terrain Exposure Scale

Using this scale:

Appendix 2

Example of applying a site based regime to a work site

Prepared by

Don Bogie

Technical Support Manager

Canterbury Conservancy

30 March 2010

Introduction

Area Managers are accountable for staff working in avalanche terrain and need to be satisfied that all practicable steps have been taken to manage the safety of staff and others working in avalanche terrain. This document is aligned with Mountain Safety Council advice which includes the ATES[1]system, therefore should be viewed as industry best practice and managers should use this as the minimum standard in managing the hazards of avalanches.

The underlying system used in this document is around the use of a default set of staff qualifications used for the different ATES terrain categories. For some categories particularly if a staff member is looking after others the standard is very high. The reason for the high standard is to do with the nature of the risk. There is no lower standard for staff competence that can be used to adequately manage the risks. The system does provide for a way of still operating in avalanche terrain even if the default standards for staff can not be reached. This is through the application of site based avalanche hazard management.

There is only one way to be completely safe from avalanche danger and that is not to go near avalanche terrain. (i.e avoidance) This will not always be a practicable step to take. All other measures reduce the risk they do not eliminate it. Managing avalanche danger takes a sizable commitment in terms of planning and in maintaining staff capability and currency.

Consultation

As part of preparing this document consultation occurred with

  • MSC programme manager for snow and avalanche work
  • DOC staff from Tongariro/Taupo, Canterbury, Westcoast and Southland conservancies.
  • DOC staff avalanche meeting held in Christchurch on the 19th of January 2010, dme 526501.

Feedback from the consultation and the 19 January meeting has been incorporated into this document.

Hazardous areas

The following are some examples of hazardous places or activities where staff may be exposed to avalanche danger if there is sufficient snow:

  • Ski area inspections
  • Driving on; some ski area roads, the Milford rd, Borland rd, Tophouse Hanmer rd, Ball Hut rd.
  • More than 20 huts in the South Island are thought to be in avalanche paths. Many others are close to avalanche paths.
  • Many tracks or routes pass through avalanche paths. Often this is well below snowline.
  • Some biodiversity programmes operate in places with avalanche paths.
  • SAR and SAR training in alpine terrain.
  • Any snow covered slope steeper than 25o. Slopes between 35o and 45o are particularly hazardous.
  • In the runout below snow covered slopes that are steeper than 25o

One of the characteristics of avalanche accidents is their ability to affect large groups of people at one time often with fatal results. Please note that this is not an exhaustive list. Each area needs to assess specific locations where staff are required to go as part of their work to generate a more comprehensive list of their sites/activities.

Methods for managing staff safety

There are four methods for managing staff safety with avalanches.

1Complete avoidance – That is eliminating exposure by remaining outside areas with avalanche hazards until such time as the snow has gone. This requires some knowledge of avalanche behavior so that people know which areas to avoid. This can either be done by some form of zone mapping if there is a need to work near avalanche terrain or by staying out of areas with snow completely.

2Site orientated management – This is the system used on the Milford road and by ski area operations. There are six elements to this as documented in SAMSS[2]:-

  • Mapping of all avalanche paths and assigning risk ratings to them
  • Collection and storage of information (Weather, snowpack and avalanche occurrence) to the standards in the NZ guidelines
  • Having appropriately qualified and experienced staff managing it (Otago Polytechnic Stage 2 qualification)
  • Having a documented plan for how the hazard is to be managed, usually on a path-by-path basis.
  • A systematic analysis of snow stability and hazard forecasting. Usually done twice daily but can be more often during storm cycles.
  • Having a rescue plan for the site

3People orientated management- This is the system used by alpine guides. They work over such large and varied terrain that it is not practical to undertake the intensive site management option. To do this requires:-

An audited safety plan for the operation.

Someone in charge of every group in the field who has the skills and ability to make accurate terrain and snow stability assessments as they travel through terrain.

In challenging and complex terrain this is a stage 2 qualified guide.

At times experienced stage 1 people may be in charge in the field but this is usually in simple terrain and they will have had their trip plan approved by a stage 2 person.

The carrying of avalanche rescue equipment (transceivers probe and shovels) by all people in the field. May also have additional gear caches in the field or in helicopters.

4Composite site – people management – This is the system used by heliski operations where there is a mixture of aspects of the intensive site management combined with the people orientated decision making in the field.

All four methods have application for the work the department does. In order to determine which system to use an analysis is needed of the likely work to occur in avalanche terrain when there is snow in the start zones, the degree of likely hazard and the amount of exposure to the hazard. A decision can then be made on whether a people orientated management approach or a site management orientated approach should be taken.This all needs to be recorded in order to comply with the Health and Safety in Employment Act.

The system recommended for use by the Department is a composite site - people management system that uses a mixture of ATES terrain analysis and designated levels of staff qualifications to work in the various categories. When assessing whether to carry out work in avalanche terrain the approach should be to follow the steps in the flow diagram below.

Flow chart

Avalanche Terrain Exposure Scale (ATES)

In order to decide what level of staff competency is required it is necessary to classify the terrain. Avalanche terrain is categorised by the ATES scale into three classes. Simple, Challenging and Complex. See Appendix 1 for a technical description of the ATES system.

Simple – Class 1; Exposure to low angle or primarily forested terrain. Some forest openings may involve the runout zones of infrequent avalanches. Many options to reduce or eliminate exposure. No glacier travel.

Challenging – Class 2; Exposure to well defined avalanche paths, starting zones or terrain traps; options exist to eliminate exposure with careful routefinding. Glacier travel is straightforward but crevasse hazards may exist.

Complex – Class 3; Exposure to multiple overlapping avalanche paths or large expanses of steep, open terrain; multiple avalanche starting zones and terrain traps below; minimal options to reduce exposure. Complicated glacier travel with extensive crevasse bands or icefalls.

Applying ATES

In order to apply ATES you need to firstly work our which place or places you wish to apply it to. It can be done at a work site level such as a particular track or on a catchment basis or across a large area of terrain. Once the places to be assessed are worked out a small team of people that includes people who are going to do the work there, people familiar with the terrain and someone with a stage two qualification applies the technical model that is shown in appendix 1. An ATES assessment sheet for each classification done should be produced. The easiest way to do that is to use the form in appendix 1, label it with the name of the place being classified and mark on it which of the criteria that apply. This is then assessed using the guidance at the bottom of the table and a terrain class chosen for that place. This should be kept as part of the HSE audit trail that shows that hazards for that site have been assessed. When the classification has been done and the area it is being applied to has been finalised they should be put into a GIS map. See dme-566334 for how to apply ATES.

Staff Competency requirements to work in avalanche terrain

These are the default requirements that should apply unless a manager approves a set of site specific rules so that staff with different skill sets can work at those designated sites.

Simple / Challenging / Complex
Overall concept / Carry out work in this terrain / Minimise work in this terrain / Try to eliminate work in this terrain
With Hazard Advisories for the Place being worked in
Staff working in peer groups. (Several members of the group have this as their minimum competency) / MSC Avalanche awareness course / MSC 4 day course / Stage one with at least three years experience in avalanche terrain.
Staff looking after others / Stage one / Stage two / Stage two but should try and avoid.
With No Hazard Advisories for the Place being worked in ( A written stability evaluation as per the standard Stage 1 form is needed prior to commencing work each day if no hazard advisory is available)
Staff working in peer groups. (Several members of the group have this as their minimum competency) / MSC Avalanche awareness course / Stage one with at least three years experience in avalanche terrain. / Stage two
Staff looking after others / Stage one / Stage two / Stage two but should try and avoid.
If you can not meet the person requirements that are needed for a terrain category then some form of specific site management is required.

Working in Complex terrain

As a general rule work in complex terrain should be avoided. Work should only happen in it if that is the only way of achieving an important outcome and the risks involved have been assessed and recorded and are acceptable to the staff involved and to those managing them. Examples of the sort of work that could be expected to occur in complex terrain that is not subject to specific site management are alpine rescues and staff maintaining alpine climbing competency requirements. DOC staff should not be looking after groups of low skilled people in complex terrain or groups that contain people external to the department particularly if any of them are children.

Working in controlled avalanche terrain

Controlled avalanche terrain is places where a ski area or a roading operation is actively managing the avalanche risk for visitors. At the times when these operations have the terrain open for public use it should be regarded as simple terrain for the purposes of carrying out department work. When it is not open for public use the terrain reverts back to what ever its underlying ATES classification is.

Danger levels

The MSC avalanche hazard advisories have five danger levels. See for a description of these levels and their advice on recommended action in the backcountry.

As a general rule DOC work in avalanche terrain should normally only occur when the danger level is low or moderate. Any work when the danger level is considerable should only be done by experienced staff. Working in high danger conditions should be restricted to very experienced staff who need to take a lot of care with where they go. No travel in avalanche terrain should occur when the danger level is extreme. Areas should define what danger thresholds they want to apply to their work and in all cases a risk assessment must take place and be recorded.

Peer work groups and looking after others

DOC field parties should have a designated leader. Good risk management does not mean that the designated leader makes all of the risk management decisions by themselves. If a person is going to be exposed to a risk they have a right to be involved in the decision making. Research into avalanche decision making has shown that peer groups of similar skill levels usually make better decisions than individuals of the same skill level. The working in peer group skill levels are similar to the advice the public will be given on skill levels needed to go into the different ATES classifications.When you change to situations of managing other people who have limited knowledge of the risk the responsibility for the groups avalanche decision making moves to the leader of the group. As they no longer have the peer support they need to have a higher individual skill level than a peer group in order to provide their duty of care to those they are looking after.

Skill/Competency levels used for working in avalanche terrain

Course/Qualification / Comprised of / Outcome / Provider
MSC Avalanche awareness / 1.5 days with no assessment. / Basic knowledge of avalanche and small party rescue / Run by MSC
MSC 4 day / 4 days with assessment of some skills. / Reasonable knowledge of terrain travel and small party rescue / Run by MSC and one company.
Stage One / 7 days with assessment of all skills covered by course. / Reasonable knowledge of terrain travel, small party rescue and skills to contribute to a snow safety programme. / A course offered by several providers around the country
Stage Two / 3 online theory papers
100 days field work since stage 1
Mentor sign offs of key skills prior to courses
5 day practical course
7 day assessment course / A person who has been assessed as having terrain travel and snow stability evaluation skills. Can lead avalanche rescue functions. After gaining post qualification work experience should be capable of managing a snow safety operation. / A course offered by Otago Polytec

Minimum staff numbers

Staff as a general rule should not work alone in avalanche paths. Staff should only work alone when a specific hazard analysis for that site shows that the risks areso low that they can be simply managed. An example of that would be crossing a defined avalanche track or runout well below the start zone when they have enough time to get out of the avalanche path if an avalanche releases naturally above them. Staff should not work alone in start zones.

Equipment guidelines

Staff need to utilise appropriate PPE. Full PPE as listed below needs to be used by anyone working in start zones or anyone spending time in run outs. Staff should only use reduced PPE if a specific hazard analysis for that site shows that the risks are low.

  • Anyone doing skifield inspections while a ski area is operating should still wear an avalanche transceiver even if they do not carry a shovel or a probe.

The following PPE should be used

  • Avalanche transceiver 457 khz. There are issues with compatibility between different brands that may reduce the performance of the set to set range. Also different types have different operational characteristics that need to be learned. It is therefore recommended that workplaces minimise the number of different types of transceivers they have. The majority of the newer three aerial models are faster for pinpointing deep burials. It is recommended that only sets with three aerials be purchased from now on. Models that receive good reviews are; Pieps DSP, Ortovox S1, Barryvox Pulse and the Tracker 2. Avalanche transceivers need regular checks. The manufacturer’s care instructions need to be followed. There are issues with some older analogue sets with frequency drift and continuous carrier wave noise. If a set is transmitting 80 hz more or less than 457 khz or has a continuous carrier wave issue then it needs to be replaced. Transmission frequency of other sets can be checked by using a special feature in the Pieps DSP transceiver. The website has reviews for all transceivers available in New Zealand and a lot of information on their use and issues with them.
  • Shovel. Small bladed shovels or plastic bladed shovels are not recommended. The Voile Pro is a shovel that is a realistic compromise between, strength, weight and size. It gets very good feedback from recent reports.Ortovox, Lifelink, SOS and Black Diamond all make something similar.
  • Collapsible probe. 2 m minimum length. Any of the brands and styles are allright but the heavier ones will last longer if needed in a prolonged probe search.
  • Helmets (skiing/boarding ones) should be considered for people working in start zones when in terrain where head injuries are more likely such as where trees, rocks or bluffs are in the runout.
  • Good outer storm shell, adequate insulation, hat, gloves and good quality boots are needed if in the snow. Below snowline travelling through avalanche paths similar clothing should be worn if travelling in poor weather when avalanche danger is increased but what ever is suitable for the conditions at other times is acceptable.
  • Communications. A method of communicating with base is required for rescue purposes and for being given advice on avalanche danger levels if daily forecasting or regional advisories are available for the work site in question. If using PLB’s for emergency notification in areas where radio reception is an issue these need to be the 406 models with GPS fitted. They will give fast accurate locations of the incident. It can take over an hour longer for the non GPS equipped PLB’s to give a location.

The following equipment should not be used.