Two serious incidents involving falls from ladders

Possible control measures to prevent similar incidents

Although a risk management approach must be used to manage the risks of falls from heights including ladders, there are several regulatory provisions that PCBUs must comply with in different workplaces.

All workplaces

Part 4.4 of the Work Health and Safety Regulation 2011 and the Managing the risk of falls at workplaces code of practice 2021 (PDF, 3.9 MB).

Construction work

Chapter 6 of the Work Health and Safety Regulation 2011 gives specific requirements to control the risks of falls, including the use of ladders.

The most effective control measure is to eliminate the risk of a fall such by working on the ground or from a solid construction. The solid construction must have a safe means for people to enter and exit and to move around the work area, for example permanently installed platforms, ramps, stairways or fixed ladders.

If the work cannot be carried out from ground-level or a solid construction, then you will need to, so far as is reasonably practicable, minimise the risk of a fall. Hazards associated with working at height (where ladders may be used) that involve a risk of falling must be identified and controlled. The following control methods should be considered when working at height with ladder:

• using higher order engineering controls such as purpose designed scaffold systems, mobile scaffold or portable stair system that incorporates work platforms or landings and guardrails. If scaffolding is used, ensuring it is erected by a competent person and complies with the Scaffolding code of practice 2021 (PDF, 1.63 MB), with safe access and egress from the scaffold provided.

• elevating work platforms (EWPs). EWPs enable workers to remain within the EWP and avoid standing on the surface. This is primarily an example of substituting the hazard for a lesser hazard. However, an EWP design may also be considered an engineering control measure and the EWP must be assessed to determine whether it is the most suitable one for the task/s.
  • The safe operation of EWPs also relies on safe work procedures (i.e. administrative controls), which includes ensuring operators hold the relevant High Risk Work Licence HRWL (where required) to operate the EWP.
• depending on the specific task and how it is carried out, step platforms (see Figure 2) may provide an improved level of fall protection over traditional step or single ladders as they include a small working platform and a partial handrail.

Figure 2 A step platform can provide a stable work surface

• implementing a safe system of work when using ladders that considers:
  • the design, condition and layout of elevated work areas, including the distance of a potential fall
  • positioning and setting up of ladders. Before setting up a ladder, it should be inspected for visible damage or faults, for example broken rungs, stiles and feet. Faulty or damaged ladders must be removed from service. When setting up a ladder you should check that:
    • the ladder is the correct height for the work to avoid over-reaching or stretching
    • locking devices on the ladder are secure
    • the ladder is not placed so that the weight of the ladder and any person using the ladder is supported by the rungs.
• setting up a ladder on a solid and stable surface, and to prevent the ladder from slipping. Single and extension ladders can be prevented from slipping by:
  • ensuring the ladder has non-slip feet
  • placing ladders at a slope of 4:1 (the distance between the ladder base and the supporting structure should be about 1 metre for every 4 metres of working ladder height)
  • securing ladders at the top or bottom, or if necessary, at both ends (see Figure 3)

Figure 3 Examples of effectively securing a ladder

• step ladders should be set up in the fully opened position and may require a second person to ‘foot’ the ladder for added stability.
• where single or extension ladders are used for entry and exit, you should check that:
  • there is a firm, stable work platform, free from obstructions, to step onto from the ladder and the ladder is securely fixed
  • the ladder extends at least 1 metre above the stepping-off point on the working platform
  • fall protection is provided at the stepping-off point where people access the working platform.
• the load rating of ladders should have a load rating of at least 120 kg and be manufactured for industrial use. Domestic or ‘homemade’ ladders should not be selected for industrial use or for use on construction sites.
• the manufacturer’s recommendations on safe use should also be followed
• only light duty work is done using ladders, where three points of contact can by maintained and tools can be operated safely with one hand
• workers are also provided with appropriate information, training, instruction and supervision to perform the tasks safely (young, new or inexperienced workers may be unfamiliar with a task).

If a risk remains, it must be minimised so far as reasonably practicable by using personal protective equipment (PPE). For example, wearing slip-resistant footwear and using a tool belt or side pouch. Administrative control measures and PPE rely on human behaviour and supervision, and used on their own, tend to be least effective in minimising risks.

Control measures should be reviewed regularly to make sure they are effective and work as planned.