SNZHB4525 2006

SNZ HB 4525:2006
New Zealand Handbook
Fire risk
Management Handbook
SNZ HB 4525:2006
SNZ HB 4525:2006
Fire and Emergency New Zealand (1692218) may print this document but not more than 10% of the documents subscribed to may be held in printed form at any one time.
COMMITTEE REPRESENTATION
This Handbook was prepared under the supervision of the Fire Risk Management
Committee (P 4525), the Standards Council established under the Standards
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Act 1988.
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The committee consisted of representatives of the following nominating
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organisations:
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*Employees of Fire and Emergency New Zealand (1692218) are licensed to temporarily download this document.
Aon New Zealand Ltd

First Windows
Institution of Fire Engineers
New Zealand Fire Service
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Risk Management Ltd
Wellington City Council
ACKNOWLEDGEMENT
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Standards New Zealand gratefully acknowledges the contribution of time and
expertise from all those involved in the development of this Handbook.
Special thanks to the New Zealand Fire Service Commission for its substantial
funding for this project, and to Aon New Zealand Ltd who provided additional
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funding.
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Copyright
The copyright of this document is the property of the Standards Council. No
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part of it may be reproduced by photocopying or by any other means without the

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prior written approval of the Chief Executive of Standards New Zealand unless
the circumstances are covered by Part III of the Copyright Act 1994.
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Standards New Zealand will vigorously defend the copyright in this Handbook.
Every person who breaches Standards New Zealand’s copyright may be liable
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to a fine not exceeding $50,000 or to imprisonment for a term not to exceed

three months. If there has been a flagrant breach of copyright, Standards New
Zealand may also seek additional damages from the infringing party, in addition
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to obtaining injunctive relief and an account of profits.
Standards New Zealand accepts that the substance of the Handbook will be
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made available electronically free of charge by the New Zealand Fire Service
Commission through its website.
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Published by Standards New Zealand, the trading arm of the Standards Council,
Private Bag 2439, Wellington 6140. Telephone (04) 498 5990, Fax (04) 498 5994.
Website www.standards.co.nz
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Handbook
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New Zealand Handbook
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Fire Risk Management
SNZ HB 4525:2006
ISBN 1-86975-048-9
210.55.22.138
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Fire and Emergency New Zealand (1692218) may print this document but not more than 10% of the documents subscribed to may be held in printed form at any one time. FIRE RISK MANAGEMENT HANDBOOK SNZ HB 4525:2006
CONTENTS
Committee Representation ………………………………………………………......IFC
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Acknowledgement …………………………………………………….......................IFC
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Copyright ……………………………………………………………………………… IFC
Referenced documents............................................................................................5
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1 Scope and Interpretation....................................................................9
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1.1 Purpose of this Handbook.................................................................9

1.2 Scope................................................................................................9
1.3 Who should use this Handbook?......................................................9
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1.4 How to use this Handbook...............................................................10
1.5 Structure and use of this Handbook...............................................10
1.6 Future actions..................................................................................10
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2 Introduction..........................................................................................12
2.1 What is risk management?..............................................................12
2.2 Why manage risk?...........................................................................12
3
3.1
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Understanding Fire..............................................................................14
What is burning?.............................................................................14
3.2 How do fires start?..........................................................................16
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3.3 How fast do fires grow?..................................................................16
3.4 How does heat move around?........................................................16
3.5 What is smoke?...............................................................................17
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3.6 What happens when items in a room catch fire?............................19

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3.7 What is flashover?...........................................................................19

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3.8 How do we detect fires?.................................................................20

3.9 The cost of fires in places of work...................................................21
3.10 Risks due to fires.............................................................................22
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4 A Framework for Managing Fire Risk............................................23

4.1 Overview..........................................................................................23
4.2 Policy...............................................................................................23
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4.3 Responsibility and accountability....................................................23

4.4 Process............................................................................................25
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4.5 Tools................................................................................................25
4.6 Information......................................................................................26
4.7 Documentation................................................................................26
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4.8 Conclusion.......................................................................................26
5 The Risk Management Process and Fire Hazards......................27

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5.1 Overview..........................................................................................27
5.2 Establish your context.....................................................................29
5.3 Identify fire risks..............................................................................35
5.4 Stage 3 – Analyse risks...................................................................44
5.5 Stage 4 – Evaluate risks..................................................................47
5.6 Treat risks........................................................................................49
5.7 Monitor and review..........................................................................55
5.8 Communicate and consult...............................................................56
6 Summary..................................................................................................58 ➤

Fire and Emergency New Zealand (1692218) may print this document but not more than 10% of the documents subscribed to may be held in printed form at any one time. SNZ HB 4525:2006 FIRE RISK MANAGEMENT HANDBOOK
Appendix
A Glossary of terms.........................................................................................60
B Sample worksheets.....................................................................................62
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C Examples of risk controls and treatments . .................................................66
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D Legal responsibility......................................................................................81
E Resources....................................................................................................86
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Table
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1 Ignition sources............................................................................................15
2 Example of the context of an organisation...................................................29
3 Risk consequence scales............................................................................32
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4 Examples of risk likelihood criteria...............................................................32
5 Risk severity matrix......................................................................................33
6 Risk response and acceptance....................................................................34
Example of hazard identification..................................................................43
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8 Example 1 of the full risk analysis................................................................46
9 Example 2 of the full risk analysis................................................................48
10 Example of how to develop risk treatment options......................................54
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Monitoring and reviewing examples............................................................55
Communication needs – examples for developing a plan...........................57
C1 Eliminate the fire hazard..............................................................................67
Reduce the likelihood – Control ignition sources.........................................68
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C2
C3 Reduce the likelihood – Control hot work....................................................69
C4 Reduce the likelihood – Control the fuels....................................................70
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C5 Reduce the likelihood – Control the fuels – Building materials....................71

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C6 Reduce the likelihood – Management and administrative controls..............72

C7 Reduce the likelihood – Legal compliance..................................................73
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C8 Reduce the consequences – Automatic fire suppression systems..............74

C9 Evacuation, emergency preparedness and emergency response...............76
Risk isolation................................................................................................78
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C10
C11 Risk sharing.................................................................................................79
C12 Special cases – Arson and construction......................................................80
E1 Sources of information.................................................................................86
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Figure
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1 Triangle of fire..............................................................................................14
2 How heat moves around..............................................................................17
3 How smoke spreads in a building................................................................18
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4 Stages in a fire.............................................................................................19
5 The risk management process and fire.......................................................28
6 Organisation chart for kitchen unit company...............................................30
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7 Business processes in kitchen unit company..............................................31

8 Identification of fire ignition hazards............................................................36
9 Identification of combustible materials.........................................................38
10 Identification of building features.................................................................39
11 Identifying who is at risk...............................................................................40
12 Identification of assets and income that might be at risk.............................41
13 Hazard map and process flow chart............................................................42
14 Risk treatment decision diagram.................................................................50
15 Hierarchy of assurance activities.................................................................56

REFERENCED DOCUMENTS
Reference is made in this document to the following:
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NEW ZEALAND STANDARDS AND SPECIFICATIONS
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NZS 3902:2004 Housing, alterations and small buildings contract
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NZS 3910:2003 Conditions of contract for building and civil engineering construction
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NZS 3915:2005 Conditions of contract for building and civil engineering construction (where
no person is appointed to act as engineer to the contract)
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NZS 4503:2005 Hand operated fire-fighting equipment
NZS 4512:2003 Fire detection and alarm systems in buildings
NZS 4515:2003 Fire sprinkler systems for residential occupancies
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NZS 4541:2003 Automatic fire sprinkler systems
NZS 4781:1973 Code of practice for safety in welding and cutting
SNZ PAS 4509:2003 sN

New Zealand Fire Service fire fighting water supplies code of practice
JOINT AUSTRALIAN/NEW ZEALAND STANDARDS AND HANDBOOKS

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AS/NZS 1020:1995 The control of undesirable static electricity
AS/NZS 1221:1997 Fire hose reels

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AS/NZS 1841:1997 Portable fire extinguishers (all Parts)

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AS/NZS 3760:2003 In-service safety inspection and testing of electrical equipment
AS/NZS 3931:1998 Risk analysis of technological systems – Application guide

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AS/NZS 4360:2004 Risk management
AS/NZS 4801:2001 Occupational health and safety management systems – Specification with
guidance for use
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AS/NZS ISO 9000:2000 Quality management systems series

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AS/NZS ISO 14000 (Set) Environmental management standards series

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SAA/SNZ HB 221:2004 Business continuity management

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SAA/SNZ HB 436:2004 Risk management guidelines
AUSTRALIAN STANDARDS AND HANDBOOKS

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AS 1319:1994 Safety signs for the occupational environment
AS 1674.1-1997 Safety in welding and allied processes – Fire precautions
AS 4214:2002 Gaseous fire extinguishing systems
SAA HB 141:1999 Risk financing guidelines
SAA HB 240:2004 Guidelines for managing risk in outsourcing
SAA/SNZ HB 436:2004 Risk management guidelines ➤

BRITISH STANDARD
BS 5378:
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Part 1:1980 Safety signs and colours – Specification for colour and design
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OTHER PUBLICATIONS
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ACC 442: 2002 Workplace Safety Management Practices Accident Compensation Corporation,
Wellington, NZ
Collier, P. and Baker, G. (2004) Improving the Fire Performance of Polystyrene Insulated Panel in New
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Zealand Research Report 45: NZ Fire Service Commission, Wellington, NZ
Department of Labour Hot work on drums and tanks ISBN 0 477 03420 9 Wellington, NZ
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ERMA (2001) User Guide to the HSNO Control Regulations ER-UG-05-1 11/01: Environmental Risk
Management Authority, Wellington, NZ
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Goodchild, M., Nana, G., and Sanderson, K. (2002) An Economic Assessment of Industrial Fires in
New Zealand Research Report 28: NZ Fire Service Commission, Wellington,
NZ
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Rylands v Fletcher and Another Volume XIX NS Reports The Law Times p. 220 [1868]
Department of Building and Housing – New Zealand Building Code – Compliance Documents
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B1 – Structure
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B2 – Durability
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C – Fire Safety in Buildings

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D1 – Access routes
D2 – Mechanical installations for access

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F1 – Hazardous agents on site
F2 – Hazardous building materials

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F3 – Hazardous substances and processes
F4 – Safety from falling

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F5 – Construction and demolition hazards

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F6 – Lighting for emergencies
F7 – Warning systems
F8 – Signs
G12 – Water supplies

NEW ZEALAND LEGISLATION

Building Act 2004
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Crimes Act 1961
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Fire Safety and Evacuation of Buildings Regulations 1992
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Fire Service Act 1975
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Hazardous Substances and New Organisms Act 1996
Hazardous Substances Regulations 2001 – 2004
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Hazardous Substances (Emergency Management) Regulations 2004
Health and Safety in Employment Act 1992
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Resource Management Act 1991
New Zealand Building Code 1992
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LATEST REVISIONS
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The users of this Handbook should ensure that their copies of the above-mentioned New Zealand
Standards are the latest revisions. Amendments to referenced New Zealand and Joint Australian/New
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Zealand Standards can be found on www.standards.co.nz

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Fire Risk Management Handbook
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1 Scope and Interpretation
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1.1 Purpose of this Handbook
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The Standards New Zealand Committee P 4525 Fire Risk Management has prepared
this Handbook in accordance with the joint Standard AS/NZS 4360 Risk management
and SAA/SNZ HB 436 Risk management guidelines to enable better management of fire
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risks in places of work.
This Handbook helps you to identify how fires could start in your workplace and shows
simple precautions that will help prevent fires from starting, how to control their effects
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and how to recover more quickly from any fire. It seeks to promote the use and benefits
of good fire risk management practices across a wide range of places of work as a way
of preventing injury and loss and ensuring the delivery of organisational objectives.
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This Handbook provides a broad approach, including definitions, processes, tools and
examples to help organisations understand and ensure effective management of fire-related
risks. The Handbook also provides an overview of the generic risk management process,
as defined in AS/NZS 4360, along with guidance for the user to apply this process in New
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Zealand organisations in relation to fire-related risks.
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1.2 Scope
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1.2.1 Inclusions
This Handbook includes guidelines and tools (e.g. worksheets) for assessing and managing
typical fire risks in small and medium-sized businesses engaged in manufacturing, storage,
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commerce, community services, infrastructure and other activities.
1.2.2 Exclusions
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The Handbook is not designed to apply:

(a) To industrial processes that are complex or pose special fire risks;
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(b) Outside the workplace;

(c) To residential accommodation.
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Sufficient information is provided about the technical characteristics of fire to allow sound
decision making. Nevertheless it is possible that particular building owners or occupiers
may need to obtain additional advice or assistance. The Handbook identifies some of the
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available sources of such support.
1.3 Who should use this Handbook?

People in New Zealand organisations range from very knowledgeable and experienced
in risk management to those for whom this is a new responsibility. This Handbook has
been designed for anyone managing or operating a small or medium-sized organisation
in New Zealand but it could be used in any size or level of an organisation as a way of
consistently assessing and managing fire-related risks in any workplace.

1.4 How to use this Handbook

This Handbook will take the user through a series of actions from identifying fire risks to
reducing them to an acceptable level and monitoring and communicating them. Appendix A
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also gives a glossary of terms. While the Handbook contains a step-by-step set of worked
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examples (based on a small to medium-sized business) it is not an instant solution. It is
meant to provide a simple and user-friendly framework to assist with managing the risk
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of fire. However, fire risk management requires ongoing thought and continuing attention
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from all personnel at all times.
1.5 Structure and use of this Handbook

The diversity of organisations for which this Handbook has been prepared means that
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some of the advice is necessarily general in nature and some readers will find they are
already familiar with one or more sections.
As a general guide:
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(a) Readers who have need to learn about risk management should read section 2,
Introduction;
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(b) Readers who have need to learn about fire and how fire spreads should read
section 3, Understanding fire;
(c) All readers should work through section 4 (A framework for managing fire risk) and
section 5 (The risk management process and fire hazards);
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(d) All readers should use or adapt the sample worksheets in Appendix B;
(e) All readers should review the suggested risk controls and risk treatments in
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Appendix C and decide which will work for their organisation or location.
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(f) Readers will find information on legal responsibilities in Appendix D and information
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on other resources in Appendix E.
1.6 Future actions

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You can think about fire risk management as a pathway. At this point you may be anywhere
on the pathway from just getting started to delivering model fire risk management. You
might start by making a commitment to learning the core principles of risk management
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and thinking about them as you go about your work.

At a suitable point in the future you may decide to begin formalising your approach.
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Eventually you might progress to a fully documented and integrated risk management
framework that incorporates management of fire risks and many of the other risks that
your organisation faces.
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It is generally recognised that risk is being managed effectively in an organisation if the

following apply:
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(a) The organisation has clear risk management goals and constantly chooses and
applies its risk management techniques accordingly;
(b) The organisation has a “real time” understanding of its risks and recognises that
most decisions about the organisation – whether of a strategic or operational nature
– will have risk implications. It will thus routinely anticipate risk as part of its decision-
making, rather than periodically react to risks that already exist;
(c) The organisation and its people have sufficient technical understanding of the various
sources of risk (in this case, fire-related risk) to allow effective risk management
decisions; and
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(d) The processes used to manage risk are integrated into the general processes of
management and are broadly consistent across all sources of risk. (This recognises
that “risk” in any organisation is defined by the organisational objectives.)
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Don’t panic! The Handbook is not intended to be a rigid set of requirements. It is designed
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to help you understand the key elements of good fire risk management, but the extent
to which you apply the risk management framework is up to you. The approach and
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the sample worksheets provided may be customised to suit your needs and available
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resources.
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2 Introduction
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2.1 What is risk management?
AS/NZS 4360 defines risk as, “the chance of something happening that will have an impact
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upon objectives”. Risk may have a positive or negative effect, and is measured in terms
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of consequences and likelihood.
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Risk is inherent in everything we do. In general, we take a risk in order to benefit from an
opportunity. When we consider opportunities, we weigh up the risks, look at the benefits
we might achieve, and make our decisions accordingly. For example, an organisation may
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invest in a new process or activity intending to improve services, products or profits. The
investment will carry risks that could result in losses (e.g. inadequate demand for a new
product) as well as the opportunity to make a profit.
The purpose of formalising risk management is to apply a process to identify risks, set an
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acceptable level for risk, and take steps to keep residual risk at that acceptable level.
How we decide what is an acceptable level is influenced by legal standards, our personal
risk tolerances and societal views. Legal standards are established in legislation (such as
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the Health and Safety in Employment Act 1992) and in common law (also known as judge-
made law) through lawsuits brought by people when things go wrong. An individual’s risk
tolerance is the level of risk that he or she is willing to take, considering the opportunity
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at hand.
We manage risk by developing responses to reduce the consequences of adverse
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incidents, their likelihood, or both. In order to do this, we need to identify risks and the
hazards that give rise to risks, assess their consequences and likelihood, and design a
treatment (response) plan.
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2.2 Why manage risk?

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2.2.1 General
We manage risk to optimise the balance between risk and opportunity. That is, we want
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to increase the chances that we will achieve something, and reduce the chances that
anything will go wrong. These days, legal and economic imperatives also provide powerful
incentives to take a systematic approach to managing risk.
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By managing risk, you can improve your performance. A key way to reduce the likelihood
of something untoward happening and to achieve the best possible results is to apply good
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practice. For example, you might apply good fire prevention to a finished goods warehouse
to ensure you can deliver the goods to your customers on time. As an added benefit, you
may find that you improve your financial position by reducing insurance costs.
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Many New Zealanders own, manage or work in small and medium-sized businesses. Such
businesses account for 98 % of places of work in New Zealand. A relatively small fire can
badly damage or destroy a business and take with it the livelihood of several people. If
the fire occurs in business hours, it may also endanger their safety or, occasionally, kill
them.
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2.2.2 Relationship between hazard and risk

A hazard is a source of potential harm whereas risk is the chance of something happening
that will have an impact on objectives. Thus, a fire in a furnace may be a hazard that
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could escape and set fire to a building; the fire might become a risk if loss of the building
could have an impact on objectives.
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2.2.3 Levels of risk
There are several ways of looking at risk:
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(a) Absolute risk – the inherent risk in a situation that has no controls present or the
worst thing that could happen if you don’t do anything about a risk. There may be
inherent controls that reduce the absolute worst case such as a large separation
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between two buildings that prevents a fire from spreading from one to the other. The
separation is an inherent control.
(b) Current risk – the level of risk when assessed with the current controls may also be
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called the controlled risk. Controls are actions taken by management to increase the
likelihood that objectives will be achieved. A fire risk control might be the provision
of enough extinguishers to attack a small fire. The difference between the absolute
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and current levels of a risk is due to the controls that are in place. The greater the
difference, the more important are your controls and the more effort that may be
needed to make sure they work as intended.
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(c) Treated or target risk – the remaining level of risk after risk treatment. Treatments
are actions taken to reduce the level of controlled risk to an acceptable level. A fire
risk treatment might be the improvement of housekeeping on a manufacturing site.
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(d) Perceived risk – an individual’s subjective assessment of the risk at any time – how
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risky you think the situation is.

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For example, poor housekeeping might result in a build-up of combustible materials near
electrical equipment. The absolute risk of a fire might be high if the electrical equipment
is poorly maintained. With good housekeeping and maintenance, the fire risk becomes
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moderate (the equipment might still malfunction and catch on fire). Because the perceived
risk is that there is a low or non-existent risk of fire, it is difficult to communicate the need
for risk reduction.
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2.2.4 A risk management model

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3 Understanding fire
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Fire can be good or bad, useful or threatening, absolutely essential but potentially lethal.
Fire can be:
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(a) Controlled – when it is used for benefit (cooking, light, heat, industry, propulsion
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etc.);
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(b) Uncontrolled – often when it is unintentionally started and grows to destroy
property, lives or environment (e.g. wildfires, bush fires, house fires, conflagrations,
explosions).
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3.1 What is burning?
3.1.1 General
Burning occurs when a fuel combusts and gives off enough heat to keep the burning going.
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Nearly 21 % of the air is oxygen so there is generally enough for a fire to burn. Sometimes,
other substances can act as an oxidiser. Chlorine, organic peroxides, ammonium nitrate
and sodium nitrate can oxidise a fuel to produce burning. Materials that burn freely in air
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can burn violently in oxygen and some other oxidising substances.
When the burning is slow, without any flames, it is often called smouldering. When it is
extremely fast, as when a gas leak mixes with air, we sometimes get an explosion. In
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between we get flaming fires.
Fuels come in many different forms. Some are gases such as those used in gas cookers,
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some are liquids like petrol, and some are solids like wood and coal.
Fuels that are gases burn freely because the gas and the oxygen can mix easily. For a
liquid to burn, the heat from the fire must boil off some of the fuel so that it becomes a
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vapour and can mix with the oxygen in the air. For a solid fuel to burn, the heat from the
fire has to break down the fuel into vapours that can mix with oxygen in the air.
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The burning process is a continuous chemical reaction between oxygen and fuel particles,
which have been heated up to their ignition temperature. This is often represented by the
triangle of fire – see figure 1. Take any one component away and the fire goes out.
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Figure 1 – Triangle of fire
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3.1.2 Ignition sources

Fires start when an ignition source containing enough energy heats up a fuel to its piloted
or auto-ignition temperature. Small pieces of wood or paper will need much less energy
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to ignite than big pieces of wood or paper that are packed together.
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Table 1 summarises the main ignition sources in New Zealand and overseas.
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Table 1 – Ignition sources
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Ignition source Percentage
Arson 40 %
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Failure or improper use of electrical equipment or 15 %
electrical wiring systems that are overloaded
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Carelessly discarded lighted cigarette materials 15 %
Hot work operations (welding and cutting) and failure 15 %

to follow hot work permit procedures
Other causes including:

• chemical reactions
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• spontaneous ignition or self-heating

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• friction (when mechanical equipment is poorly
lubricated or maintained)
• external fires (sparks or radiated heat)
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• static electricity
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3.1.3 Fuels
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For a fire to start, the fuel must be in the right form. For example, it is relatively difficult to
set wood on fire when it is in the form of a newly felled tree trunk. After drying and cutting
into smaller pieces of wood, it is easier to set on fire. If the wood is converted into paper,
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it is very easy to set on fire. If the wood is reduced to particles of wood dust in air, it can
burn so fast that it explodes.
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Fuel can be in a solid form (e.g. wood, paper, plastic or cotton) that is easy to see and
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manage. It can be in liquid form (e.g. petrol or oil) that needs to be contained in a tank or
smaller container. Or it can be gaseous (e.g. natural gas) and need to be delivered in a
pipe or tank. Sometimes, a fuel can be in different forms: LPG is a liquid when it is very
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cold but as it warms up to room temperature the liquid boils and forms an invisible vapour
that, being heavier than air, can flow along the ground or in drainage channels.
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3.1.4 Oxygen
Oxygen is in the air we breathe. We cannot see, smell or touch it. Sometimes, oxygen is
stored in cylinders so that it can be used to speed up a controlled fire (e.g. in oxy-acetylene
welding). If it escapes through a leaking valve or hose, the oxygen can make it much
easier for some fuels to be ignited (e.g. grease on clothing can be set on fire very easily
in an oxygen-rich atmosphere).
15
3.1.5 Breaking the triangle of fire

If we can remove or reduce one side of the triangle when a fire has started, the fire will
go out. This is how fire extinguishing systems work. For example:
*
(a) Water will cool a fire so there is not enough heat for it to continue burning;
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(b) Foam can smother a burning liquid and so remove the fuel from oxygen or the air;
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(c) Some extinguishing agents stop the chemical reaction between the fuel and oxygen
in the air.
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Also, if we can keep one side of the triangle away from the other sides a fire cannot start.
In practical terms it is easier to prevent ignition sources from reaching fuels.
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3.2 How do fires start?
All fires start with an ignition source that is either new or is no longer properly contained.
For ignition to occur, all the following conditions must exist simultaneously and be
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continuous.
(a) Sufficient heat must be present to provide the required energy (“kinetic energy”) for
the chemical reaction to start. If there is insufficient energy, the molecules do not
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react with each other. The energy to cause ignition might be in the form of a match
or a spark or a cigarette. All fuels require different amounts of heat energy to cause
an ignition; some are easier to ignite than others;
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(b) There has to be enough fuel vapour in the air; not too much, not too little; and
(c) There has to be sufficient oxidiser (air).
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Once started, a fire is easily visualised as a self-sustaining “heat engine”. A fire is the
combustion of vaporised fuel, which when burnt produces heat, which in turn converts
more fuel into vapour, thus continuing the combustion cycle. The speed with which a fire
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grows will then depend on what is available to burn and how it is arranged. Some fuels
can quickly spread fires around a building while others burn locally.
Remember, if there is no ignition there is no fire. Prevention is better than a cure.
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3.3 How fast do fires grow?

The rate of fire growth depends on the fuel that is burning, and how much air can get to
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the fire. Fires in liquids and gases can grow very fast but some solid materials also burn
very easily. Thin materials like cardboard burn faster than thick materials such as wood.
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Fire tests have shown that some materials stored in warehouse racking will burn very fast
and can spread a fire across spaces between the racking.
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A high fire load could result in a very large fire.
3.4 How does heat move around?

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The good, and bad, effects of fire result from the movement of heat away from the flame
and into the adjacent area.
The study of heat is a subject in itself, with the movement of heat (heat transfer) categorised
into three different modes:
(a) Convection – the transfer of heat by moving particles or liquids or gases, like the heat
that flows out of a kettle in a flow of steam;
(b) Conduction – the transfer of heat through a solid, like the heat we feel when we touch
the outside of a hot stove; and
16
(c) Radiation – the transfer of heat by infrared electromagnetic radiation, heat we can feel
without touching like the heat from the sun or from a ceiling heater in the bathroom
or from a campfire.
*
NOTE – All these processes of heat transfer are shown in figure 2.
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(1) A fire has started in some office furniture stored in a room and the hot smoke cannot
n
escape.
(2) Heat is being transferred from the fire to the smoke by convection and the heat is rising from
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the fire in a plume of hot smoky gases.

(3) Heat is transferred from the smoke to the ceiling and the walls by convection.
(4) The ceiling has heated up and is radiating heat back down to the surroundings, including some
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office equipment.
(5) The fire is also radiating heat outwards to the rest of the room and the hot smoke is radiating
heat downwards to the floor and the rest of the material in the room.
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(6) Some of the heat is being conducted through a wall to heat up cardboard boxes in the next
room. The boxes have become hot enough to ignite.
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Figure 2 – How heat moves around

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3.5 What is smoke?

Smoke from fires is very hot and contains the products of combustion. These almost always
include water vapour and the gases carbon monoxide and carbon dioxide. Some gases
produced by burning (e.g. carbon monoxide and carbon dioxide) are very poisonous and
others are irritating and cause coughing or streaming eyes. Smoke also contains particles
of unburned carbon that make it look black. Smoke therefore endangers people. ➤
17
Because smoke is usually much hotter than the surrounding air it has buoyancy and can
move through openings and doors to the top of a building and gradually fill it.
In figure 3, a layer of smoke has built up inside a room and has begun to move into the
*
corridor. The smoke will then rise to the highest point in the building unless a wall or
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ceiling blocks its path. The smoke will then spread across the ceiling and fill the space
downwards.
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All the time, heat from the smoke is warming up the building and building contents.
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Eventually, other parts of the building, remote from the original fire, could be set on fire
by the heat from the smoke. This is especially dangerous if the smoke is spreading in a
ceiling void or some other space that cannot be seen.
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If you can see (or smell) smoke, treat it as harmful, because it:
(a) Makes it difficult to see;
(b) Is an indication of a nearby fire;
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(c) Contains poisonous gases;
(d) Can transfer heat quickly and spread fire closer towards you;
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(e) Reduces the level of visibility and light illumination; and
(f) Contains unburned flammable gases and can ignite suddenly.
When moving in smoke stay low – remember that smoke tends to rise.
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Figure 3 – How smoke spreads in a building
18
3.6 What happens when items in a room catch fire?
Fires can burn fast in enclosed spaces such as rooms. This is because the trapped smoke
*
in the room radiates heat back to the contents of the room, which heat up until they are
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hot enough to ignite.
A fire cannot burn without air. So if all the doors and windows in a room are closed, and
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the windows do not break, the fire will probably go out. But if there is an open window or
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door, fresh air to feed the fire can flow in, and smoky gases will flow out.
Usually the hot smoky gases will form a layer in the top of the room and there will be a
clearer layer of cool air near the floor. This air is drawn into or entrained in the smoke
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plume that rises from the fire. As the fire grows the smoky layer descends closer to the
floor and becomes hotter and blacker.
At this stage conditions are very dangerous for anyone left inside the room. Also the hot
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smoke that is flowing out of the door is moving around the rest of the building, threatening
people elsewhere.
Figure 4 shows the stages in the development of a fire.
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Figure 4 – Stages in a fire

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3.7 What is flashover?

As the smoky gas layer in a room becomes hotter it radiates more and more heat to the
rest of the contents of the room. Finally, the whole room catches fire, almost explosively.
This is flashover.
After flashover the room is essentially in burning free fall mode, only limited by the
availability of oxygen. Flames come out of windows and doors and it is most likely that
the fire will quickly spread to other parts of the building. The fire is now very difficult to
control. ➤
19
The temperature of the hot smoky gases at the time of flashover is about 600 ºC. This
is extremely hot, nearly red hot. But after that the temperature of the room may climb to
over 1000 ºC. The room will carry on burning until it has consumed all the fuel, or until
*
fire fighters put it out.
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Flashover can occur within three minutes of a fire starting.
n
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3.8 How do we detect fires?
Since fires grow so fast and become deadly so quickly, it is important that we detect them
early, preferably with an automatic system. Automatic fire alarms designed and built to
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NZS 4512 Fire detection and alarm systems in buildings can do this.
Because smoky gases rise to the top of the room, smoke-detector based fire alarms that
comply with NZS 4512 will usually give the earliest detection of a growing fire while it is
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small. Heat-detector based fire alarms that comply with NZS 4512 give a slightly slower
warning than smoke-detector based systems.
If an automatic fire alarm is connected to the Fire Service it will not only sound the
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evacuation alarm inside the building but will also send a signal calling the Fire Service.
This is especially important if a fire starts after-hours. Some automatic fire alarms may
be connected to a monitoring station. While they will sound the evacuation alarm the
Fire Service may take longer to be called, resulting in more risk to people and damage
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to property.
However, regardless of the type of detector, an automatic fire alarm will do no more than
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signal the alarm and does nothing to stop the growth of a fire. Such fire alarms are therefore
only a part of a planned emergency response plan. During work hours, an emergency
response plan must include evacuation and may include some attack on the fire with
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extinguishers or fire hose reels until the Fire Service arrives. After hours, the emergency
response plan will probably require a response from the Fire Service and call-out of
designated staff. In either case, the Fire Service should know something of the activities
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in the workplace and the substances you use.

An automatic sprinkler system takes slightly longer to detect a fire than an automatic
smoke-detection system but, once activated, sprinklers will spray water onto the fire while
ht
it is still small and signal the Fire Service through an automatic alarm connection. Whilst
a sprinkler system may be more expensive than a heat or smoke-detector system, it not
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only detects the fire, but controls it while signalling the alarm and calling for Fire Service
help. In many cases, sprinkler systems extinguish fires before the Fire Service arrives.
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3.9 The cost of fires in places of work

3.9.1 General
*
Some research in New Zealand (Goodchild et al, 2002) found that the total cost of the
2719 workplace fires in one year was:
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(a) 3 fatalities, 3 serious injuries and 25 non-life threatening injuries;
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(b) 209 full time equivalent jobs affected;
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(c) $8.5 million due to injuries and fatalities;
(d) $44 million to the businesses affected;
(e) $23 million to the Fire Service;
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(f) $8.5 million indirect economic costs; and
(g) $2.1 million indirect effects of reduced consumption.
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3.9.2 Occupations and activities most at risk
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The same research showed that over the five years from 1996 to 2000, the 10 areas in the
New Zealand economy most at risk of suffering from fires were (in descending order):
(f) Wood and paper product manufacturing;
(g) Electricity and gas supply;

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(h) Food, beverage and tobacco manufacturing;

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(i) Water supply, sewage and drainage services;
(j) Non-metallic mineral product manufacturing;
(k) General manufacturing;
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(l) Accommodation, cafes and restaurants;

(m) Storage and wholesaling;
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(n) Petroleum, coal, chemical and associated products manufacturing;
(o) Food retailing.

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A few fires involved various sorts of processing equipment, but the great majority of
workplace fires involve careless disposal of cigarettes, faults in electrical systems,
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overheating and the use of cooking equipment.

In general, records in New Zealand and overseas show that the main causes of fires are
consistently:
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(a) 15 % carelessly discarded lighted cigarette materials;
(b) 15 % hot work operations – failure to follow hot work permit procedures;
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(c) 15 % failure, or improper use of electrical equipment and systems;
(d) 40 % arson;
(e) 15 % other causes such as chemical reactions, spontaneous ignition, etc.
Recently, arson has become a very serious cause of fires; in some parts of New Zealand
it now accounts for 50 % of fires.
Looking at these ignition causes, will suggest how fire-related risks could be minimised
in many workplaces.
21
3.10 Risks due to fires

3.10.1 Physical risks
*
The risk of injury or damage by fire could arise from a number of causes, for example: by
burns from an out-of-control process; from a fire burning in a workplace; from an explosion
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involving a hazardous substance; or from fire spreading to adjacent property.
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Injuries, deaths and damage to property due to fire-related risks can also give rise to
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other consequences such as dissatisfied customers, business disruption, prosecutions
and loss of profits.
3.10.2 Business risks
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Regardless of whether a business operates in the public, private or not-for-profit sector,
organisations need to set goals and objectives, raise funds to develop goods or services,
market themselves, sell goods or provide services and maintain their ability to operate.
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A minor fire can severely disrupt these functions and have a serious impact on organisational
objectives.
A large fire can totally disrupt normal business for protracted periods, resulting in loss of
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business and assets. After large fires, businesses can take months to restart or can even
become bankrupt.
3.10.3 Legal compliance risks

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Organisations and all their employees have legal duties to make sure that people who
could be affected by workplace activities are not harmed by them. They risk legal action
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and fines and sanctions if they do not comply with these duties. Most organisations will
also have in-house standards and rules. Legal compliance means doing the things that
people and organisations must do to comply with their legal duties and in-house rules,
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irrespective of whether they directly contribute to achievement of the business objectives

of the organisation.
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Appendix D sets out the legal background to fire risks in places of work. Here, it is enough
to note that it is a legal requirement to protect from harm people who could be affected by
a fire in your place of work. This will mean taking all practicable steps to reduce the risk
of fire and having emergency plans for evacuation if a fire does occur.
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4 A framework for managing fire risk
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4.1 Overview
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A formal approach to management of fire-related risks will require top management direction
and support, probably including a formal policy and written accountabilities. For some
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places of work, a formal management system that incorporates fire risk management will
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help maintain good management control of other workplace risks.
Any effective framework for managing risks needs to incorporate:

(a) A management policy;
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(b) Responsibilities and accountabilities for managing risks;
(c) Processes and procedures; and
(d) Tools, information and documentation.
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4.2 Policy
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A fire risk management policy is important to record the organisation’s commitment to
managing fire risk, the principles it will apply, who will be responsible and accountable for
aspects of risk management, and when key activities will be undertaken. A documented
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policy provides the formality to ensure that fire risk management receives the intended
level of attention. This does not need to be a large or complicated document, but it should
be developed with careful thought about the commitment being made and the resources
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available. A fire risk management policy should include top management commitment
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to:
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(a) Achievement of business goals and objectives;
(b) Accountabilities for areas of risk management and specific activities;

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(c) Compliance with relevant legislation;
(d) Prevention, detection and control of fire;
(e) Continual improvement of the management of fire-related risks; and

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(f) Regular review and revision of the policy.

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4.3 Responsibility and accountability

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4.3.1 General
Fire risk management is everyone’s business but successful implementation of a fire risk
management system will require allocation of appropriate accountabilities to nominated
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individuals throughout the organisation. While nominated employees will have specific
roles and responsibilities in the strategy, everyone in an organisation needs to be informed
and aware of the fire risk management strategy. For example:
(a) The executive is responsible for setting out strategies, making sure the resources
needed to deliver the strategies are in place and associated fire risk and compliance
issues are met.
Example: There is long-term investment in a change from using flammable liquids in
a process to a process that uses water as the solvent. ➤
23
(b) Managers are responsible for ensuring employees and contractors have the necessary
skills, raw materials and production equipment to deliver the required services or
products and knowing the organisation rules.
*
Example: Employees have approved containers for safely carrying flammable liquids
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from the dangerous goods store to the place of use.
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Example: Fire prevention responsibilities are allocated to production employees while
maintenance or property management employees are allocated responsibilities for
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maintenance of fire detection and suppression equipment.

(c) Employees are responsible for working responsibly to get the defined job done and
minimise the likelihood of injury.
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Example: Employees have been trained in and understand the safe ways of using
flammable liquids.
(d) Contractors are responsible for understanding and carrying out the instructions given
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to them.
Example: Contractors know how flammable liquids are managed on site and what
they are expected to do to conform to the management system.
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4.3.2 Management system
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The most effective, long-term way of managing fire risks is to build your fire controls
into a management system. For example, developing an occupational health and safety
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of fire risks easier. Such a system also contributes to the wider management of business
and legal compliance risks. The following are points to note:
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(a) The most significant fire safety legislation (the Health and Safety in Employment Act
1992, the Hazardous Substances and New Organisms Act 1996, the Fire Safety and
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Evacuation of Buildings Regulations 1992 and the Building Act 2004) do not specifically
require an OHSMS but such a system will help make compliance with that legislation
easier;
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(b) AS/NZS 4801 Occupational health and safety management systems, describes the
establishment of an OHSMS;
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(c) The Accident Compensation Corporation (ACC) offers premium discounts for an
15
audited OHSMS that meets the workplace safety management practices standards
(refer to ACC 442). These standards were developed from AS/NZS 4801;
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(d) Insurance companies may offer reduced premiums to organisations that demonstrably
manage the risk of fire.
Therefore, there can be good legal compliance and financial reasons to develop an OHSMS
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that conforms with AS/NZS 4801. Alternative management systems include:

(a) Quality management systems that conform with the AS/NZS ISO 9000 series;
(b) Environmental management systems that conform to the AS/NZS ISO 14000
Environmental management standards series.
24
4.4 Process
Section 5 explains the generic risk management process as set out in the Standard
AS/NZS 4360 Risk management. While that Standard does not aim to promote uniformity
*
of risk management systems, it sets out the elements of an effective risk management
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process.
Risk management should be part of everything you do, not a separate management
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process. However you approach managing your organisation, there will be opportunities
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to build risk management disciplines into your current processes. Whether your planning
processes are formal or less structured, as you set goals you should be asking yourself,
“What could go wrong?” “What could prevent me achieving these goals?” and, “What should
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I be doing about it?” Strategic and business planning, operational planning, and planning
for projects and events should all have risk management firmly embedded within them.
As you monitor and review the organisation’s performance, you should look for risk
information. You might require a risk section to be included in management reports.
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Discussion of risk should be a standing agenda item for all meetings whether at board,
management, team or project level.
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Encourage people at all levels to think about risk and what they should do when they
recognise a risk or a hazard as they go about their daily activities. If an individual identifies a
risk that they can’t handle alone, or that is significant in terms of its likelihood and potential
consequences, there should be a process to bring it to the attention of their manager.
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If the manager is unable to deal with the issue within the scope of their responsibilities
and delegation, they should take the issue further. This principle of escalation is key to
enabling people at all levels to participate effectively and safely in managing risk. It also
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ensures that each risk is dealt with at the appropriate level.

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4.5 Tools
In order to facilitate the process of managing risk, it is important to have adequate tools.
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Tools might include forms and methods to help with risk identification and analysis.
4.5.1 Worksheets
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Worksheets or computer databases can be helpful when identifying and assessing risks
and organising information. See Appendix B for examples of worksheets.
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4.5.2 Risk identification and analysis tools

There are a number of resources and techniques you can use to help identify fire hazards
and their causal factors that could become risks. Examples are listed below:
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(a) Undertake physical inspections of the workplace and equipment – look for fire
hazards;
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(b) Brainstorm with a team – ask what could go wrong (sometimes, what has gone
wrong);
(c) Review the organisation’s management and delivery processes and look for points
where things can go wrong;
(d) Commission annual audits by your insurer, insurance broker or an ACC workplace
safety management practices auditor that show weaknesses in the management
system;
(e) Examine records of previous plans, reviews, and incidents; ➤
25
(f) Talk to other organisations (including trade bodies) about their approaches and the
risks they have identified – what have their fire experiences been?
(g) Talk to stakeholders, circulate documents;
*
(h) Talk to the local Fire Safety Officer, your insurance broker or insurance company
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– what can they tell you about fires in your type of business?
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(i) Observe people, activities and events;
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(j) Hire a risk consultant who is a sector specialist;
(k) Consult relevant trade or professional organisations – what sorts of fire reports do
they have from your sector?
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(l) Conduct research using industry publications, newspapers and the internet.
Further guidance on formal risk analysis tools can be found in AS/NZS 3931 Risk analysis
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of technological systems – Application guide.
4.6 Information
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The risk management process outlined in section 5 will help you gather risk information
about your organisation. You may also need information to help you decide on good risk
practices, on appropriate risk treatments, on the environment you operate in, and on
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different techniques for analysing and ranking risks. Appendix E provides some ideas for
accessing further information about fire.
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4.7 Documentation
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Keep records of your risk management activities. Records will provide an audit trail should
they be required by stakeholders or regulators. They will provide a history for reference
so you won’t have to start future activities from scratch. Good records will also ensure
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that your perception of the organisation’s risk and how you communicate this to staff and
stakeholders are consistent. Your risk management documentation should include:
(a) Risk management policy (see 4.2);
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(b) Context statement (see 5.2);
(c) Your risk evaluation register (see 5.5);

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(d) Plans to deal with or treat identified risks (see 5.6.3);
(e) Risk analysis research (this will be a file that you keep research documents in);
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(f) Monitoring and reviewing information (see 5.7); and
(g) Risk communication plan (see 5.8).

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4.8 Conclusion
The above provides an overview of a framework for managing fire risks. In the next section,
we will show how the process works in practice using a manufacturing company as an
example.
26
5 The Risk Management Process and Fire Hazards

5.1 Overview
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The general risk management process involves five logically sequenced process stages
and two ongoing activities set out below.
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5.1.1 Process stages
(1) Establish the context for managing risks, including criteria for evaluating them.
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(2) Identify risks and how they can arise.

(3) Analyse how often risks are likely to occur and the consequences they would have.
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(4) Evaluate each risk’s likelihood and potential consequences against your evaluation
criteria.
(5) Treat unacceptable risks to reduce the chance that they will happen or the
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consequences they would have if they did.
5.1.2 Ongoing activities

Aspects of risk management should be ongoing and continuous and include the
following: sN
(a) Monitor and review the performance of the system and changes that might affect it;
(b) Communicate and consult with internal and external stakeholders as appropriate
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at each stage of the risk management process and concerning the process as a
whole.
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5.1.3 Risk management process

These stages have been drawn together in figure 5 to show the risk management process
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and how it relates to managing fire-related risks. The rest of this section provides more
detail.
The practical process we will go through is:
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(1) First we will need to understand our business environment – our context;
(2) Then we will need to make sure the suggested criteria for measuring our fire risks
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are appropriate;
(3) We can then identify our fire risks and their current controls, analyse the risks and
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evaluate whether the risk severity is at an acceptable level;

(4) Finally, for fire risks that are at an unacceptable level, we can develop a risk treatment
or reduction plan;
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(5) This risk treatment plan and all our other work will need to be communicated to
employees and other stakeholders and the status of our risks, controls and risk
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treatment/reduction plans monitored.

In this part of the Handbook, we will use an example based on a kitchen unit manufacturer
that has many fire hazards commonly found in the manufacturing industry.
As we go through this section, you may want to start making notes about fire hazards that
could result in risks in your place of work. It is never too early to make a start! You can
always check out your notes and make good records later.
27
Establish the context
*
What sort of business do we operate?
What are our objectives?
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Who are our contractors/subcontractors?
What are our operational activities?
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What are our business functions?
What is our business structure?
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Who are our suppliers and what do they supply?

Who are our customers?
What are our criteria for likelihood, consequence and risk tolerance?
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Identify possible fire risks
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What fire hazards are there?
What fire ignition sources are there?
How could an ignition source get to a fuel?
What can be set on fire – the fuel?
Who would be at risk?
What assets would be at risk?
Does the risk vary:
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Communicate and consult
• between shifts?
• day/night?
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Monitor and review

• with the seasons?
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and determine the level of risk
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Analyse the risks with controls (likelihood and consequence)

and determine the level of risk
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What are the controls that are in place?

How likely is the risk to occur with those controls?
What would the consequences be with those controls?
Are the controls working effectively?
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Evaluate risks
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Compare with criteria set earlier

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Treat No
risks?
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Yes
Identify options
Assess options or carry out a cost benefit analysis
Analyse the risks with various treatment options
Select best options (short, medium and long term), set priorities and
implement
Figure 5 – The risk management process and fire
28
5.2 Establish your context

5.2.1 Scan the external and internal environment
*
To complete this step, use table 2 to ask yourself the following questions (the right-hand
column provides an example of possible answers for our kitchen unit manufacturer).
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Table 2 – Example of the context of an organisation
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Example questions Your answers – some examples

What sort of business do we operate? A small kitchen unit manufacturer with
growing turnover aimed at the luxury end of
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the market. Plans are in hand to add more
production and storage space.
What are our objectives? To supply and install high quality kitchen
units on time and on budget to customers.
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Who are our most important suppliers of:
Raw materials? (Who are they and what Company A supplies hardwoods from
do they supply?) renewable tropical sources.
sNCompany B supplies special Italian lacquers

that give us a unique selling point.
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Plant and equipment? (Who are they and Company C supplies saws made in the
what do they supply?) USA.
Company D supplies lacquer and paint

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spraying equipment from Australia.

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Utilities e.g. electricity, water, gas, Company E is our gas and electricity lines
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telephone, transport (Who are they and company and company F is the gas and
what they supply?) electricity supplier.
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Who are our most important customers? Company G, a builder specialising in luxury
houses.
Do we have contractors or Yes.
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subcontractors?
If so, who are our most important Kitchen units are installed by company H.
contractors or subcontractors and what
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do they do for us? Plumbing and draining work is done by

company I.
Electrical work is done by company J.

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How is our business structured? See the example organisation chart,

figure 6.
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What operational activities do we See the example flow chart, figure 7.

operate?
What equipment do we use to move and See the example flow chart, figure 7.
process materials or stock, wrap or pack
finished goods, etc?
What are our business functions? See the example flow chart, figure 7.
(Describe using a flow chart or a site
layout sketch)
29
5.2.2 Internal environment – organisation

We have used the simple organisation chart in figure 6 and later will show how
accountabilities may be set using the people shown.
*
If you own or work in a small or medium-sized organisation that has no organisation chart,
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drawing one, and discussing who is accountable for what, (including which parts of the
site), can sometimes help towards reducing risks.
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Managing Director
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Stores and Finished Sales and Marketing
Finance Manager Production Manager
Goods Manager Manager
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Accounts Team leader 1 Goods inwards North Island
receivable supervisor sales rep.
Preparation
1 FTE person 2 Full time staff
supervisor South Island
sales rep.
Accounts
payable sN
5 Full time staff
Finishing
Goods
outwards
supervisor
1 FTE person supervisor
3 Full time staff
3 Full time staff
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Payroll
Team leader 2
Preparation
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supervisor
5 Full time staff
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Finishing
supervisor
3 Full time staff

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Figure 6 – Organisation chart for kitchen unit company

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5.2.3 Internal environment — activities

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A simple, hand-drawn flow chart can help clarify processes and (as you will see later) their
associated risks. For this example, we have used the flow chart in figure 7 to show some
of the business processes in our kitchen unit manufacturer. This flow chart will be used
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later with fire hazards added that would need to be included in a fire risk assessment.
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Wood, customwood, handles

and hinges, paint & lacquer,
solvents, laminates, glues,
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cardboard & plastic packaging
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Raw materials
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Unloaded with forklift truck Unloaded with forklift truck
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Timber and wood Small materials Dangerous goods
store store store
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Production building
Saws
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Clamps
Spray booth
Assembly
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Packing
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Packaging Fork lift truck

Finished goods
store bay
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Figure 7 – Business processes in kitchen unit company

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5.2.4 Documentation
Appendix B1 provides a sample worksheet to help you document your context
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statement.
5.2.5 Identify types of risk consequences and their likelihood, and determine how to
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measure these
You will need to be able to measure your fire risks. First you need to choose what the
consequences of a risk might be. One set of risk consequences is shown in table 3 following.
These cover the consequences of fires but if they do not seem right for you and your place
of work, adapt them to suit your circumstances. SAA/SNZ HB 436 Risk management
guidelines, gives more information about developing such risk criteria.
31
Table 3 – Risk consequence scales
Negligible Minor Moderate Major Catastrophic
*
Injury Bruises, Contusions, Blood, broken bones, Hospitalisation Death, or permanent
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scrapes, no sprains and/or and/or 1-6 weeks and/or more than 6 disability
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recovery time less than 1 week recovery weeks of recovery
recovery
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Financial Less than 1 % 1-2 % of budget 2-5 % of budget 5-10 % of budget More than 10 % of
of budget budget
Production Fire evacuation Fire evacuation Fire evacuation and Fire evacuation, Fire evacuation,
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resulting in 1 and clean-up clean-up resulting clean-up and repair clean-up and repair
hour of lost resulting in 1 day in 1 week of lost work resulting in work resulting in
production of lost production production 1 month of lost 6 months of lost
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production production
Next you need to decide how likely such a risk consequence might be. Table 4 shows
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some commonly used risk likelihood criteria to adapt to suit your circumstances.
SAA/SNZ HB 436 Risk management guidelines, gives more information about developing
such risk criteria.
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Table 4 – Examples of risk likelihood criteria

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Scale Description
Almost incredible The incident may only occur in exceptional circumstances (for example, once in
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10 years)
Rare The incident could occur at some time (for example, at least once in 5 years)
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Unlikely The incident will probably occur at some time (for example, once in 3 years)
Possible The incident will probably occur in most circumstances (for example, once per
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year)
Almost certain The incident is expected to occur in most circumstances (for example, more than
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once per year, and almost guaranteed in each event)

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Once you have identified your risks and analysed them using your consequence and
likelihood criteria, you will need to plot them into the matrix shown in table 5. If, for example,
you had decided that a fire hazard has a moderate consequence and the likelihood is
*
possible, you would have a risk severity of high. The risk severity matrix is reproduced in
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Appendix B4 as one of the worksheets you can use.
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Table 5 – Risk severity matrix
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Almost certain Medium High High Extreme Extreme
Possible Medium Medium High High Extreme
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Likelihood
Unlikely Low Medium High High High
Rare Low Low Medium Medium High
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Almost incredible Low Low Medium Medium High
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Consequences
If you use the consequence and likelihood scales and matrix shown above, you may decide
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that your response to the controlled or current risks that are extreme/medium/high/low
will be as shown in table 6. Again, you may need to adapt table 6 to your organisation
but remember that the larger a current or controlled risk is, the more senior the person or
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people who should decide if it is acceptable.

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Table 6 – Risk response and acceptance
Evaluation of risk with Risk response and acceptance
*
controls
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Extreme Are all the controls effective? Only the board or equivalent can accept
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this level of business risk. Immediately halt any activity at this level of
risk unless written approval has been given to accept it.
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Nobody can be asked to work if there are controlled health and safety
risks at this level. The activity cannot be carried out legally; ask why this
job or task needs to be done at all.
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The CEO and management team must be told immediately of any
controlled risks at this level and (if the risk is accepted by the board)
must implement remedial action approved by the board and monitor
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conformance daily.
There should be effective crisis response plans that enable rapid
response.
High sN
Are all the controls effective? Only the CEO or equivalent or board can
accept this level of business risk. Immediately halt any activity at this
level of risk unless written approval has been given to accept it.
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Nobody can be asked to work if there are controlled health and safety
risks at this level, the activity cannot be carried out legally; ask why this
job or task needs to be done at all.
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The CEO and management team must be told immediately of any

controlled risks at this level and (if the risk is accepted by the CEO) must
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implement remedial action and monitor conformance daily.

There should be effective crisis response plans that enable rapid
response.
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Medium Are all the controls effective? Only the relevant senior manager or
CEO can accept this level of business risk. Consider the profitability of
business risks at this level. If acceptable, monitor conformance regularly.
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A health and safety risk that is medium should be reduced to low or the
activity halted.
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There should be effective business continuity plans that enable rapid

response to unexpected conditions.
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Low A risk at this level is probably as low as reasonably practicable. Confirm

that all the controls are effective.
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The relevant team leader can accept this level of business risk. Consider
the profitability of business risks at this level. If acceptable, monitor
conformance regularly.
If the risk could damage the “bottom line” or reputation, there should
be effective business continuity plans that enable rapid response to
unexpected conditions.
A risk that will be low with controls in place should be acceptable to
workers and their managers.
34
5.3 Identify fire risks

5.3.1 General
*
Once you have started your fire risk management process by establishing your context,
you can identify the fire hazards in your workplace. This stage involves determining:
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(a) What can ignite a fire;
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(b) What can be set on fire;
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(c) How the fire could spread; and
(d) Who and what could be at risk.
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Using the tools identified earlier (4.5.2), you can now identify your fire hazards that could
result in fire risks.
In the following decision trees (see figures 8 to 12) we give examples of risk reduction
measures. If these are already in place they are risk controls. If they are options for treating
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or reducing a risk, they are risk treatments. For example, you may have a housekeeping
programme in place (a risk control) but decide you need to develop an emergency response
plan (a risk treatment). When work on the treatment is finished it becomes a control. More
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information about controls and treatment options is given in Appendix C.
Caution! There are many more controls than are shown in this Handbook and it may
be necessary to research and apply those that are most relevant and cost effective
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for your business.
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5.3.2 Ignition, fuels and spread of fire

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Think back to the triangle of fire (figure 1) and how we need to control the ignition source
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and the fuels. Once a fire has started, the building may also be set on fire and (as shown
in figure 2) parts of the structure can become fuel and actively spread the fire to other
parts of the building. As part of identifying what can go wrong and how it can go wrong
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we need to look at these sources of fire hazards.
5.3.2.1 What starts fires in places of work – what is the ignition source?
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In table 1 we saw that the most common heat sources that ignite fires in New Zealand
are:
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(a) Arson;
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(b) Failure or improper use of electrical equipment or electrical wiring systems that are
overloaded;
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(c) Carelessly discarded lighted cigarette materials;
(d) Hot work operations (welding and cutting) and failure to follow hot work permit
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procedures; and
(e) Other causes such including:
(i) Chemical reactions

(ii) Spontaneous ignition or self heating
(iii) Friction (when mechanical equipment is poorly lubricated or maintained)
(iv) External fires (sparks or radiated heat)
(v) Static electricity. ➤
35
Using figure 8 you can identify possible sources of ignition and some of the controls that
might already be in place. Make a note of the possible controls, especially those that you
may need to think about if a fire risk is too high.
*
Arson is now so common that you should include it in any fire risk assessment. See
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Appendix C12 for more guidance.
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Similarly, if you are about to have any building work done you should carry out a special
fire risk assessment. See Appendix C12 for more guidance.
ala
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Common ignition sources Examples of risk reduction measures
Are any electric light fittings overheating?
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Yes Annual testing for Building Warrant of
Fitness
Routine inspections
No
Are any electric light fittings close to

combustibles?
Yes
sN Relocate the lights
Routine inspections
No
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Is any electric equipment damaged,
overloaded or arcing?
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Routine inspections
Yes
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210.55.22.138
extension cables
No Regular testing of electrical equipment
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Is any hot equipment close to combustibles?
Use notices, floor markings, barriers, etc. to

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Yes
prevent hot equipment being close to
combustibles
No Routine inspections
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Is smoking allowed anywhere on site?
Yes
Rules prohibiting smoking
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Smoking shed in safe place

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No
Is welding or hot work carried out on site?

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Yes
Eliminate hot work; or
safe hot work control system
No
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Can you identify other ignition sources (e.g.

contract works)?
Yes
Can they be eliminated, isolated or
minimised?
No
Record the results and identify combustible

materials
Figure 8 – Identification of fire ignition hazards
36
5.3.2.2 What starts fires in places of work – what is the initial fuel source?
Using figure 9 you can identify possible combustibles and some of the controls that might
*
already be in place. Make a note of the possible controls, especially those you may need
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to think about if a fire risk is too high.
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Common fuels that are set on fire include:
(a) Paper and cardboard (e.g. in offices);
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(b) Cooking oil and cardboard (e.g. in restaurants, cafeterias and diners);
(c) Timber (e.g. in sawmills and other timber processing places of work, including
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construction sites);
(d) Rubbish (e.g. stored outside places of work);
(e) Natural gas;
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(f) LPG;
(g) Liquid fuels such as petrol and diesel oil;
(h) Plastics;
(i) Coal and similar solid fuels;

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(j) Dusts that can burn or explode (e.g. wood, flour, plastics); and
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(k) Timber pallets stored under canopies or against buildings.
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Common combustible materials Examples of risk reduction measures
*
Is paper, card or plastic used on site?
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Yes Good housekeeping
Safe storage of packaging and waste
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Routine inspections
No
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Are flammable liquids or gases used or
handled?
Can they be eliminated?
Yes Check HSNO requirements for your legal
compliance requirements
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No Training to required standards
Routine inspections
Are any walls made of foam plastic such
as expanded polystyrene?
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Strict hot work controls & electrical safety
Yes Avoidance of hot processes near walls
Prevention of unprotected openings
Are there bulk amounts of combustible
materials on site? sN
Yes Good housekeeping
Safe storage of materials
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Routine inspections
No
Are materials stored in high bay racks?

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Yes Training of fork lift truck drivers

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Routine inspections
Keep away from light fittings
No
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Is any cooking done in deep oil?
Yes Regular checks on thermostats and

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temperature controls
Develop a safe system of working
No
Are any explosive dusts produced by

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processes?
Yes Can the dust be eliminated?

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Can the dust be safely extracted to the

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outside of the building?

No
Record the results and review structural
features
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Figure 9 – Identification of combustible materials

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5.3.2.3 How could a fire spread through the building?

In figure 2 we saw how a fire can move around in a building. Here, we need to identify any
building features that could help a fire grow and spread. Using figure 10 you can identify
some of the ways that a fire might spread in your workplace and some of the controls that
might already be in place. Make a note of the possible controls, especially those you may
need to think about if a fire risk is too high.
38
Buildings are normally designed to have fire compartments that will limit the size of a fire
and enable people to escape. The fire compartments should have fire walls where they
abut another fire compartment. Openings such as doors or ducts for services should be
*
protected to stop a fire passing through. Voids under floors or in ceilings are often a serious
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fire hazard as a fire can smoulder for some time and spread through a void to other parts
of the building. Fires can also spread vertically.
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Processes that use or store flammable liquids may require the construction of a workroom
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that is its own fire compartment, has an ability to contain spilt liquids, and contain specialist
electrical and ventilation systems to control the build-up or ignition of a hazardous
atmosphere.
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Structural features Examples of risk reduction measures
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Was the workplace designed to have
separate fire compartments?
Yes sN Check Building Consents for design and

compliance requirements
Routine inspections
No
Are there fire doors or windows that were

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designed to stop the spread of fire?
Yes Building Warrant of Fitness requirements

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Routine inspections
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No
Are service ducts, lift shafts, cable and

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pipe ducts and openings in compartment

walls fire stopped?
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Yes Building Warrant of Fitness requirements

Maintenance of fire stopping
Are there voids under the floors or above

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the ceilings that bridge compartment?

Divide and fire-stop voids at compartment
Yes
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Housekeeping
Are large quantities of combustible

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materials stored on site?
Yes Store in a fire compartment with good

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separation from the rest of the site

No
Record the results and review who could

be at risk
Figure 10 – Identification of building features
39
5.3.3 Who is at risk?
5.3.3.1 Who is at risk from a fire?
*
We have now looked at what could ignite a fire, what might burn and how a fire could
spread. Using figure 11 you can identify who might be at risk and some of the controls
d
that might already be in place. Make a note of the possible controls, especially those you
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may need to think about if a fire risk is too high.
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People at risk Examples of risk reduction measures
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Are the only people in the workplace
employees?
Fire evacuation plan

Yes
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Automatic fire alarm
Automatic sprinkler system
No Routine inspections of equipment
Do contractors work in the workplace?
Yes
sN Contractor induction and control procedure
No
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Do members of the public visit the workplace?
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Yes Visitor log
Staff trained to find and evacuate visitors
No
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Do people sleep in the workplace?

Specialist advice
Yes Fire evacuation plan
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Staff trained
Automatic fire alarm
No
Automatic sprinkler system
Could neighbours be endangered by a fire in
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the workplace?
Yes
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System to warn neighbours

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Emergency shutdown procedure

No
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Record the results and review what could be at

risk
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Figure 11 – Identifying who is at risk
5.3.3.2 Assets and income

As well as people, the assets and income of a workplace could be at risk from a fire. Using
figure 12 you can identify assets that might be at risk and some of the controls that might
already be in place. Make a note of the possible controls, especially those you may need
to think about if a fire risk is too high.
40
Assets and income at risk Examples of risk reduction measures
*
Are there assets that you depend on to
operate the workplace that could be
damaged or destroyed by a fire?
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Emergency response plan
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Yes
Business continuity plan
Crisis communications plan
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No Insurance or other risk finance
Have you identified all of those assets?
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Yes
Maintenance programme
Protection for special or unique items
No
Do the assets include intellectual
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property?
Yes
Up-to-date copies maintained in a secure
place
No
Do the assets include computer systems?

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Yes Regular back-up of data
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Back-up of software
Replacement hardware available
No
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processing of orders and invoices?
210.55.22.138
Yes
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Back-up procedures
No
Could a fire result in court action leading

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to fines or other penalties?
Yes
Management systems improved
Containment of fire-fighting water run off
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No
Record the results and analyse the risks

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without and with current controls

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Figure 12 – Identification of assets and income that might be at risk

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5.3.4 A practical example

In figure 13 we have taken the flow chart in figure 7 on page 31 and marked on it some
typical fire hazards that might be found:
(a) During an inspection;
(b) By asking employees and occupational safety or fire safety professionals for their
help; or
(c) By asking your insurance broker or insurer to help identify hazards.
41
Wood, customwood, handles

and hinges, paint & lacquer,
solvents, laminates, glues,
*
cardboard and plastic packaging
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Raw materials Sparks
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and
hot surfaces
Unloaded with forklift truck Unloaded with forklift truck
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Smoking
in yard
Timber and wood Small materials Dangerous goods
store store store
Scrap
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wood in yard Flammables
carried in open
Pallets -top containers:
stacked vapours and spills
Electricity against building
Production
building
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Saws
Dust Maintenance Clamps
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explosion welding
Spray booth
Light fittings Hot
Assembly exhaust
and storage
Packing
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LPG
Arson
Smoking Packaging Fork lift
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outside Finished goods truck bay

store Polystyrene
despatch area
in walls
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Figure 13 – Hazard map and process flow chart

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5.3.5 Documentation
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When you have identified your fire hazards you should record them in a risk register. Our
example fire hazards have been recorded in table 7 using the sample fire risk register
shown in Appendix B2. Your fire hazards and risks will probably be quite different but
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should be recorded in a similar way.

Tip: if you record your risks in a spreadsheet or other software try to be consistent in the
way you name your risks – it helps if you need to sort them.
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42
Table 7 – Example of hazard identification
No controls – absolute risk With controls – current risk
*
Fire hazards Risk and brief Controls / Consequences Likelihood Risk Consequences Likelihood Risk
description Effectiveness evaluation evaluation
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Stacks of
n
timber pallets
against Fire in yard
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building damages
or destroys
Scrap wood
storage
and packaging
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building
stored in yard
Lack of site Ignited by
security arsonist or
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Smoking careless
allowed in disposal of
yard cigarette
Poor
housekeeping
Too much Fire in
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flammable finishing area
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liquid held in destroys
production production
areas building.
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Usage not
Flammable
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monitored
vapours are
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given off
Spark from and ignited
electric by static
equipment
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electricity or
electric spark
Overheating
Fire in
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electrical
offices stops
equipment
administration
Large
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amounts of
paper records Overheating
electrical
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equipment
ignites large
amounts
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Steel/ of paper
polystyrene records; steel/
sandwich polystyrene
walls sandwich
vulnerable to walls
fire damage vulnerable to
fire damage
collapse
quickly
43
5.4 Stage 3 – Analyse risks

5.4.1 Overview
*
Now that you have identified your fire hazards, you need to analyse them to understand
how often they might happen, and what the consequences would be if they did. You will
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be making an educated guess about these things because you are looking at what might
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be. You will need to look at past events, your current approach to management of risks,
the environment and anything else that you think will affect how often an incident might
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happen, or how serious it might be.

You should ask the following questions:
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(a) What controls have we got in place already?
(b) How often does/will each incident happen under our current system?
(c) What would the actual outcome be if the event happened?
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At this stage, you are compiling the raw data about each hazard. You will not apply your
criteria to score your risks until we evaluate the risks.
In order to get a reasonable understanding of how often an incident might occur and the
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potential consequences of each risk, you may need to:
(a) Review records of the organisation’s performance and incidents;
(b) Talk to people running similar organisations; and

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(c) Seek specialist advice from your insurance broker, insurer, local Fire Safety Officer
or a consultant.
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Sometimes it won’t be easy to pin these factors down. However, if you decide later that
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something is probably going to happen more often, or have a different type or level of
consequence, you can always go back and revise your analysis.
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5.4.2 Consider existing controls

A control is any action, procedure or thing that enhances risk management and
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increases the likelihood that objectives will be achieved. For example, a control could be
housekeeping to prevent a build-up of combustible materials or maintenance of electrical
equipment to prevent malfunction or overheating.
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You need to do the analysis twice – once as if there are no controls in place (the absolute
risk) and once with the current controls in place (the current or controlled risk). This will
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help you know how important the existing controls are; any that are really important will
need to be closely monitored to make sure they are working properly. See 5.7 for more
information about monitoring.
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For each risk, look at each hazard and identify what is already in place to:
(a) Reduce the likelihood of the risk event occurring; or
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(b) Reduce the consequences of the risk if it does happen.
You might identify external safe smoking areas to ensure that cigarettes are safely disposed
of. While most fire risks and incidents arise from more than one hazard, it often takes only
one hazard to cause a risk. So even if you have strong controls for nine hazards out of
10, if the tenth is weak, you could still suffer a fire.
44
Once you have identified the controls, consider how effective they are. Are your staff and
contractors well-trained, committed, and attentive? Are procedures well enough defined
and implemented to ensure staff know how to do a job properly (i.e. safely) and have they
*
been trained in these procedures?
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5.4.3 What consequences could we face if the incident happens?
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In this step, you should note all of the consequences that could result if the risk were
to become a reality. Any fire could have a range of consequences from death or injury
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to financial costs (including costs of repairs, fines, increased insurance) to damaged

relationships, and loss of standing or market share. You need to consider at least three
areas of consequence:
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(a) People – employees, contractors and visitors;
(b) Assets; and
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(c) Income.
Using the criteria provided in table 3, you could express consequences in terms of injuries,
dollars or competitiveness. Remember, you are applying the categories and measures,
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but not the scoring system at this point. In other words, you are trying to identify the likely
number of injuries or deaths, or number of weeks an employee might be off work, or the
loss of assets and income an event might cause.
You also need to consider whether your activities create fire risks that will impact on other
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people. Even where there may be a minimal chance that your organisation may face
consequences you should consider the potential consequences for others, such as fire,
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smoke or other environmental hazards spreading to adjacent buildings or bush.
In working through this stage, you may identify another type of consequence that you
hadn’t included in your evaluation criteria. If it isn’t adequately covered by your criteria,
an
you will need to go back and add it.
5.4.4 How often might the incident happen?

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Is the incident likely to happen once per year? Every quarter? Once in a lifetime? In order
to gather reliable information about how often incidents are likely to happen, you may
need to review your records of past performance and incidents, or talk to other similar
ht
organisations about their experiences. A variety of agencies may be able to provide you
with statistics, for example:
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(a) Fire Service Commission maintains fire statistics;
(b) ACC maintains injury statistics; or

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(c) Insurance brokers and companies may also be able to help with information.
We have added to our risk register to show the controls and the likelihood and consequences
of our sample risks – see table 8.
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5.4.5 Documentation
Appendix B2 provides a sample worksheet to help you document your risk analysis.
45
Table 8 – Example 1 of the full risk analysis
*
d
n
Scrap wood Fire in yard Weekly With no controls Once every 3 With controls, Once
damages or a person could years with no injury resulting every 10
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& packaging housekeeping
stored in yard destroys storage inspections be killed, loss of controls in more than 6 years with
building finished goods and weeks recovery controls
orders, could be Possible and disruption
Lack of site Boundary fence Rare
sued, face legal for 1 week
security rusted and holed
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action of up to
Ignited by $100 K Moderate
Smoking arsonist or Absence of
allowed in yard careless disposal smoking shed Catastrophic
of cigarette
ew
Nobody
Poor
accountable for
housekeeping
the yard
Too much
flammable
liquid held in
Fire in finishing
area destroys
production
building
Flammables are
stored in a fire
With no controls,
fire destroys
production area
resulting in 6
sN
Once every
month with
no controls
With controls, 1
week disruption
Possible
Once every
3 years with
controls
rated cabinet but
production months disruption. Almost Moderate
it is not kept shut
areas certain
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Catastrophic
Flammable
vapours are
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Usage not given off and Flammables are

ignited by static
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210.55.22.138
electricity or
electric spark
an
Spark from
Equipment not
electric
flame proofed
equipment
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Fire in With no controls, With no With controls, 1 Once

Overheating offices stops fire destroys controls, week disruption every 50
Annual electrical
electrical administration administration once every years with
safety tests
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equipment work offices but not 10 years Moderate controls

computer network;
1 month disruption Rare Rare
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Overheating Housekeeping Major

electrical and storage
Large amounts equipment system prevents
of paper
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ignites large paper touching

records amounts electrical
of paper equipment
records; steel/
Co
polystyrene
sandwich walls
vulnerable to fire
damage collapse
quickly
Steel/
polystyrene
sandwich walls None
vulnerable to
fire damage
46
5.5 Stage 4 – Evaluate risks

5.5.1 General
*
Evaluating risks is about scoring them with the matrix shown in table 3. You will need to
confirm that your criteria are relevant to your place of work, score your risks, and find the
d
overall level of risk for each risk.
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For each fire risk, mark the consequences and likelihood of it happening in table 3 and
ala
note the risk severity. Where a risk has more than one possible consequence or likelihood,
and they are at different levels, note the highest score – the worst potential outcome.
Table 9 provides an example of scoring for the risks we have been working on. For the
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first risk, we decided that someone could be killed. Against our consequences criteria,
a death would be catastrophic, so we would give that risk a score of “catastrophic” for
consequences. With our current controls, we thought this might happen every 10 years.
Against our likelihood criteria, that would be “possible” and receive a severity rating of
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“extreme”.
sN
rd
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Table 9 – Example 2 of the full risk analysis
*
d
n
Fire in yard Weekly With no controls Once Extreme With controls, Once Medium
Scrap wood & packaging
ala
damages or housekeeping a person could every 3 injury resulting every 10
stored in yard
destroys storage inspections be killed, loss of years in more than 6 years with
building finished goods with no weeks recovery controls
Boundary
and orders, controls and disruption
Lack of site security fence rusted Rare
could be sued, for 1 week
Ze
and holed Possible
face legal action
Ignited by Absence of Moderate
Smoking allowed in yard of up to $100 K
arsonist or smoking shed
careless Catastrophic
ew
disposal of
cigarette Nobody
Poor housekeeping accountable
for the yard
Fire in finishing Flammables With no controls,

sN
Once Extreme With controls, 1 Once every High
area destroys are stored in fire destroys every week disruption 3 years with
Too much flammable
production a fire rated production month controls
liquid held in production
rd
building cabinet but area resulting with no Possible
areas Moderate
it is not kept in 6 months controls
shut disruption.
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Almost
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Flammable Flammables Catastrophic certain
Usage not monitored vapours are are freely
given off and available
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ignited by static
electricity or
Spark from electric electric spark Equipment not
equipment flame proofed
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Fire in With no controls, With no Medium With controls, 1 Once Medium

offices stops fire destroys controls, week disruption every 50
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administration Annual administration once every years with

Overheating electrical
work electrical offices but 10 years Moderate controls
equipment
safety tests not computer
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network; Rare Rare

1 month
Overheating
Housekeeping disruption
electrical
and storage
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equipment Major
system
ignites large
Large amounts of paper prevents
amounts
records paper
of paper
Co
touching
records; steel/
electrical
polystyrene
equipment
sandwich walls
vulnerable to
fire damage
collapse quickly
Steel/ polystyrene
sandwich walls None
vulnerable to fire damage
48
5.5.2 Risk evaluation – do the risks need to be treated?

Our evaluation has been written into the analysis in table 9. This shows the risk of:
(a) A fire starting in storage area – risk can only be accepted by top management; the
*
activity that gives rise to the risk would need to be reduced if it cannot be avoided;
d
(b) A flammable liquid fire in the production area – is probably not acceptable, even to
n
top management, and the risk would need to be eliminated or reduced; and
(c) A fire starting in administration offices – the risk probably needs to be reduced if it
ala
cannot be avoided.
NOTE – The controls that reduce the risk of fire in the storage area are very important and need
to be monitored to make sure they are working properly. Whatever is done to reduce the risk of a
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flammable liquid fire in the production area by treatment will also, when completed, be very important
and need similar monitoring.
SAA/SNZ HB 436 Risk management guidelines, provides further information on determining
ew
the level of risk and establishing the acceptability or tolerability of risk.
5.5.3 Documentation
sN
The sample worksheet in Appendix B2 could help you document your risk analysis and
evaluation.
rd
5.6 Treat risks
Treating risks involves setting treatment objectives, identifying and developing options
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for responding to individual risks, evaluating and selecting the most appropriate options,
compiling the selected options into a plan, and implementing the plan. You might already
be familiar with this concept as “managing risk” or “risk reduction strategy”.
an
The risk management process shown in figure 5 shows where treating the risks fits in.
5.6.1 Identify options

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5.6.1.1 General
This step focuses on working out what you can do to treat risks that you decided you
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cannot accept in their current state.

The following hierarchy of risk controls and treatments is adapted from the Health and
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Safety in Employment Act 1992 and AS/NZS 4801 Occupational health and safety
management systems.
You could decide to:
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(a) Eliminate or avoid hazards that give rise to the risk of a fire;
(b) Reduce the likelihood of hazards that give rise to the risk of a fire;
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(c) Reduce the consequences of a fire;
(d) Isolate fire hazards that give rise to the risk of a fire;
(e) Share or transfer the consequences of a fire risk; or
(f) Retain the residual consequences of a fire risk.
The questions and decisions in these steps are summarised in figure 14. As you work
through these steps, you should find they suggest ideas to you. More ideas about treating
risks are given after figure 14 and Appendix C gives some further examples.
49
Can the fire hazard be avoided or

eliminated?
*
yes
d
No
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Can the likelihood of the fire hazard
be reduced?
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yes
No
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Can the consequences of a fire be
reduced?
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yes
No
Can the fire hazards be isolated?
yes
sN
No
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Can the consequences of a fire be
shared or transferred?
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No Write down your options.

Carry out a cost benefit analysis.
Select the best option(s)
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Decide how implementation will

be managed and who will be
responsible for making it happen
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Will the risk be acceptable if the

treatments are completed
successfully?
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options. If this does not reduce the

No
risk to an acceptable level decide if
the risk can be retained or if it is too
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large to continue yes

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record results using risk assessment

record sheet
Develop a risk treatment plan that

includes monitoring of progress and
communication of why, when and how
the project is to be run
Figure 14 – Risk treatment decision diagram
50
5.6.1.2 Eliminate or avoid the risk

You could:
(a) Eliminate ignition hazards that could start a fire;
*
(b) Eliminate flammable liquids from use in a building or fire compartment; or
d
(c) Substitute less hazardous materials or processes by re-engineering the process.
n
Eliminating fire hazards may need a change in a process that requires capital expenditure.
ala
It may therefore be a medium- to long-term solution.
5.6.1.3 Reduce the likelihood of a fire occurring

You could reduce the likelihood of ignition by, for example:
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(a) Maintenance of plant or equipment that produces sparks or heat;
(b) Regular testing of electrical equipment;
ew
(c) Effective hot work controls and other permit-to-work procedures;
(d) Operating a process with intrinsically safe equipment;
(e) Developing safe operating procedures; or
(f) Replacing unsafe, old equipment.

sN
You could reduce the likelihood of materials burning by, for example:
(a) Reducing the amount of combustible materials you keep near to ignition sources;
rd
(b) Operating a just-in-time delivery system for combustible raw materials; or

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(c) Improving housekeeping.
5.6.1.4 Reduce the consequences of a fire that does occur

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You could reduce the consequences of a fire by, for example:

(a) Making sure you have the right hand-held fire extinguishers;
(b) Training employees in the correct use of hand-held fire extinguishers;

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(c) Installing an automatic fire suppression system; or
(d) Developing emergency response procedures and providing emergency equipment

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including an automatic fire alarm system.

Even with excellent plans in place to reduce the likelihood of your risks, fires may still
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happen. Your risk controls should always include evacuation plans and appropriate
fire-fighting equipment and incident response, disaster recovery or business continuity
plans.
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5.6.1.5 Isolate the fire hazard

You might decide to isolate a known fire hazard by removing all people from the immediate
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fire-risk area by:

(a) Operating a process in a special building with intrinsically safe equipment;
(b) Storing hazardous substances or materials in a separate building or fire compartment;

or
(c) Providing engineering controls to prevent access to a process while it is operating.
51
5.6.1.6 Share or transfer fire risks

Sharing risk means letting someone else bear some or all of the consequences of the risk
for you. Generally you do this by paying another party to do something for you.
*
You could, for example:
d
(a) Contract out a hazardous process to a well-equipped contractor where the risk can
n
be managed to a lower level; or
(b) Insure against the financial consequences of a risk so that if your business burns
ala
down the cost of rebuilding, business interruption and increased costs of working
are covered.
If you share risks, you need to make sure that the party you share them with is able
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to manage them. Your specialist company needs to be capable of managing the risk
properly and you have a legal duty to make sure the employees of the contractor can
work safely. SAA HB 240 Guidelines for managing risk in outsourcing provides guidance
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on contracting out.
You also need to be sure that your insurer will be able to pay any claims; talk to your
insurance broker for advice on this. SAA HB 141 Risk financing guidelines contains further
guidance on risk finance, including insurance. sN
5.6.1.7 Retain the risk
Once a risk is reduced by treatment to an acceptable level, you can decide to retain or
rd
accept it in that state.
You can retain a risk by:
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(a) Making a conscious decision to accept that a fire could cause harm to your business
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– but you will need good advice before deciding to retain such a fire risk, especially
an
if it could harm employees, contractors or other people; or

(b) Understanding how any insurance excess will affect your business if there is a
claim.
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It is important that all your stakeholders know the size and potential consequences of
any retained fire risks. This means that you need to show and communicate what this
means for them.
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5.6.2 Assess options

When you have identified your risk treatment options, you need to decide which to apply.
As you assess treatment options, you need to consider the opportunities or benefits that
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the organisation or its stakeholders get from the activity that the risk relates to. You need to
think about whether the options would create further risks, or open up further opportunities.
For example, a manufacturer may decide that, in light of a spate of small fires, an activity
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is too risky or that security needs to be improved to prevent arson attacks.

In assessing options, there are several questions you should ask:
(a) Is a combination of options better than one big hit?
(b) How do the costs of an option weigh up against its benefits?
(c) Is more than one option necessary to reduce the risk to an acceptable level?
(d) Does the option reduce the risk but also reduce the opportunities?
52
Several lower-cost options may give more resilience than one higher-cost option. In this
case, failure of one low-cost option will not jeopardise your place of work whereas failure
of the single high-cost option could be disastrous.
*
You should consider the values and expectations of your stakeholders before selecting
d
options. If you decide to share your risk with a contractor or insurer what effect will this
have on your profitability now and in the future?
n
ala
5.6.3 Compile a risk treatment plan
Your risk treatment plan must clearly document the options you have selected, who is
responsible for carrying them out, and any timing requirements. Your plan should also
note reporting requirements, and who is responsible for managing the overall programme
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of activity.
Options designed to reduce the consequences of a risk may need to be quite detailed.
Some of these options require a course of action once the risk has happened. In some
ew
cases this will be an emergency response plan, and its success will depend on having
people and resources in place, and perhaps on having rehearsed scenarios.
While your responses to risk should be integrated into your strategic, business and
sN
operating plans, you may decide to establish a separate fire risk management plan to
encourage a focus on this area of risk. A fire risk management plan should include:
(a) Your context information (including risk evaluation criteria);
rd
(b) The list of hazards and risks identified;
(c) Your risk evaluation and priorities;

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(d) The selected strategies or actions to treat risks; and

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(e) Monitoring processes and review procedures.

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5.6.4 Implement treatment plan

To get to this point, you have worked through the risk management process. You have
St
arranged meetings, and gathered facts. You have collated information and sifted through it
to make sense of it and to identify your priorities. You probably have a clearer understanding
of your organisation and its risks than ever before. And, yet, all of this effort will go to
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waste if you don’t implement your risk treatment plan.

Implementation means to ensure that the activities on the plan are carried out. If the plan
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is well developed, this should happen easily because all the tasks will be clear and will be
delegated to specific people. It is critical that the plan be communicated to all those who
will be responsible for carrying out actions, whose co-operation is required, and whose
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involvement could have an effect on the success of the plan.

Even if your plan is well developed, accurately identifies all the ways things can go wrong,
and identifies an appropriate treatment for each one, disaster could strike if even a small
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aspect of the plan isn’t properly put into action.
5.6.5 Example of a treatment plan

Earlier, we identified three fire risks each needing some treatment to reduce their severity
to an acceptable level. Those risks were:
(a) Fire in yard damages or destroys storage building;
(b) Fire in finishing area destroys production building;
(c) Fire in offices stops administration work.
53
Table 10 shows how you might decide on some risk treatments or reduction options for
one of those risks.
*
Table 10 – Example of how to develop risk treatment options
n d
Evaluation of risk
ala
Risk treatment/ Risks reduced by Current After Cost in $ Priority Recommended Who will be
reduction option this option this completion date accountable
option for this?
Ze
New boundary Fire damages/ Medium Low 5,500 Medium Within 12 months Stores and
fence destroys storage Finished
building Goods
ew
Manager
Yard housekeeping Fire damages/ Medium Low 0 due to High Within 1 month Stores and
programme destroys storage sale of Finished
building sN
salvaged
wood
Goods
Manager
Smoking shed in Fire damages/ Medium Low 2,500 Low – Rejected, smoking N/A
rd
yard destroys storage smoking ban instead
building can be
banned
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on site
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5.6.6 Documentation
See Appendix B3 for a worksheet you might use to assess treatment options, and
Appendix B5 for a worksheet to help you develop your risk treatment plan.
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5.7 Monitor and review

Congratulations! If you have carefully completed the previous five stages of the risk
management process, you probably have a risk management system in place. Now you
*
need to monitor several elements of your fire risk management programme to ensure it
d
is effective.
n
5.7.1 Examples of monitoring and reviewing are set out in table 11.
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Table 11 – Monitoring and reviewing examples
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Who should What should they monitor? How should they monitor/review?
monitor?
Senior management Your organisational context Review your documented context
ew
statement and risk profile:
If anything changes in terms of your goals, the
environment you operate in, or your internal • whenever anything significant
situation, it could affect your risks and their controls changes
sN • once a year as part of strategic

planning
Senior and middle Your risk profile can change if you change Regular management review meetings
managers objectives, or your suppliers, employees or to discuss changes in the risk profile
rd
customers change. Risks change in terms of their and decide what needs to be done.
likelihood and potential consequences. New fire
Regular project reports during major
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risks can arise, and old ones can disappear.

projects.
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Middle managers Risk controls should be monitored for effectiveness Observations

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and team leaders

Overall standards of hazard and risk management Regular inspections
Middle managers Achievement of risk treatment plans Management or project team meetings
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and team leaders
Employees and Adequacy of resources for them to control risks Compare the resources they have with
contractors those set out in control plans.
ht
Ask for more resources if the job/

project changes.
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Third party audits ACC workplace safety management practices Inspections and audits
and reviews auditors, insurance broker and insurance company
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staff or OSH inspectors may monitor risk controls in

which they have a special interest
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55
Figure 15 shows that most monitoring effort should be on a day-to-day basis (e.g.
employees and contractors checking their own work) with less frequent effort applied
by managers to assessing the effectiveness of controls and (say) an annual audit of the
*
overall management system by specialists.
n d
Regular checking Day to day – embedded
ala
and continuous into place and methods

monitoring of work
Line management Control self assessment etc. –
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review driven by risk profile and a
manager's span of control
Third party Internal and external auditing
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audit by specialists in fire safety
(e.g. insurance broker/company
surveyor, fire safety or
occupational safety specialist)
sN
Figure 15 — Hierarchy of assurance activities
rd
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5.8 Communicate and consult

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Communication and consultation are important elements of the fire risk management
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process. Communication is not a stage in the process, but the means of involving and
informing stakeholders continually throughout the process. You want everyone to:
(a) Have the same, shared view of fire risks and the need to control them effectively;
St
(b) Be aware of their roles and responsibilities;
(c) Know the fire risk management programme; and

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(d) Be aware of the procedures for controlling fire risks.
This is done in a variety of ways via communications. Table 12 gives some examples of
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who, what and how to communicate about fire risks. Some of the examples of how to
communicate are included in our descriptions of controls and treatments.
Using table 12, you should be able to improve the way you communicate about fire risks
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and their controls in your place of work.

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56
Table 12 — Communication needs – examples for developing a plan
Who to communicate What to communicate How to communicate
*
with
d
Employees Your expectations for ignition prevention Training (induction, on-the-job,
n
(smoking, electrical safety, etc.), housekeeping skills, etc.)
(when and how to clean up, etc.), use of fire
Tool box meetings
ala
extinguishers
Signs and notices
Whiteboards for shift handover
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Contractors Your general expectations for qualifications, Annual briefings of preferred
experience and supervision of contractor suppliers
employees
ew
Your job-specific requirements for fire safety Contract conditions
including ignition prevention (smoking, electrical
Pre-job induction training
safety, hot work control, etc.), housekeeping
(when and how to clean up, etc.), flammable
liquid control
sN Permit-to-work procedure setting
out job/task specific requirements
All building occupants Fire alarm and evacuation procedures Training (induction, on-the-job,
rd
skills, etc.)
Notices
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All building occupants in Housekeeping in common areas such as Lease conditions, letters, etc.
multi-tenanted buildings stairwells and lobbies
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Suppliers of raw Information about conditions for the use and Material safety data sheets
materials storage of hazardous materials
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Stakeholders need to be aware that the organisation is systematically addressing risk,

whether they are in governing roles responsible for the organisation’s overall performance,
ht
or regulators who need to know that you are complying with relevant legislation.
Stakeholders’ views need to be considered in developing the criteria for evaluating risk
(see 5.2.5), in order to reflect their tolerance for different kinds of risks.
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By developing not only awareness, but a culture of responsiveness to risk, your organisation
will begin to develop a commitment to continuous improvement.
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6 Summary
6.1 The generic risk management process, as set out in AS/NZS 4360 Risk management,
*
involves the following five process stages and two ongoing activities:
d
(a) Establish your context to consolidate your understanding of the factors that will guide
how you manage risk, considering both internal factors (e.g. goals, relationships,
n
activities and capabilities) and external factors (e.g. social standards, legal context).
ala
In this stage, you also confirm or develop your risk evaluation criteria which you will
use to prioritise your risks.
(b) Identify your risks – what potential fire risks could the organisation and its people
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face?
(c) Analyse your risks by determining what consequences they would probably have,
and how often they are likely to happen, considering controls you already have in
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place.
(d) Evaluate your risks against your risk evaluation criteria, and establish the overall
level of risk, to determine whether each risk is acceptable or unacceptable.
sN
(e) Treat risks – you might decide to retain a risk, avoid it altogether, reduce the likelihood
or consequences, or share it with someone better able to manage the risk or the
consequences.
rd
(f) Monitor and review your risk management process, your context and risks, your
treatment plan and results.
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(g) Communicate and consult with internal and external stakeholders throughout the
process to inform and involve them. Gather input from them on risks and their
characteristics, evaluation criteria, satisfaction with the process and with the risk
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treatment plan. Provide them with information on the organisation’s risk management
policy and process, controls and their responsibilities.
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6.2 While the generic Standard sets out five logically sequenced stages, you may find that
you work backward and forwards as you gather information and learn things about the
ht
organisation and its risk profile. For example, at different stages there is a need to revisit
your risk evaluation criteria. You may start identifying risks and realise that you need to
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include a further type of consequence in your criteria. As you start analysing risks you
might find it necessary to go back and refine the list of risks you identified previously.
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6.3 Risk management is set out in the Standard and in this Handbook as a separate process.
It is helpful to look at it this way so that you understand the principles but, ideally, risk
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management should be part of everything we do. Now that you know the principles of risk
management, you can apply them formally and informally, at a high level or a detailed
level, as part of strategic, business, operational and project planning and delivery.
58
6.4 Organisations operate on many levels; at times we need to focus on the strategic,
sometimes on more immediate business level needs, sometimes on day-to-day operational
delivery. Depending on the focus, we may do things in a more formal, structured manner,
*
or we might make decisions and respond to issues in a more informal or ad hoc way.
d
While the degree of formality might differ, good managers will still apply basic management
principles: ensuring compliance with organisational policies; ensuring their decisions are
n
aligned with the organisation’s goals, ensuring that action is taken once a decision is
ala
made; and checking to see that the action has brought about the desired results. At the
strategic and business planning levels, this will be done through a fairly formal process,
and the decisions will be documented and reported against. In the field, decisions and
checking are often done quickly and verbally.
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6.5 Similarly, the level of resources in your organisation will influence your approach to both
ew
management and risk management. Smaller organisations with simpler management and
risk situations will probably apply less complicated risk management approaches. Larger,
more complex, organisations may need to use more refined processes and tools.
sN
6.6 While AS/NZS 4360 Risk management and this Handbook are designed to provide you
with a process and some tools to help you manage fire risk, they cannot eliminate the
rd
need for you to think critically about your organisation, its goals, its environment, and its
risks and opportunities.
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59
APPENDIX A – GLOSSARY OF TERMS
*
Board – a governing or advisory body comprised of directors, which may include
committees of management.
d
Consequences – the outcomes of an event expressed qualitatively or quantitatively,
n
being loss, injury, disadvantage or gain. There may be a range of possible outcomes
ala
associated with an event.
Control – any process, system or action (usually taken by management or other parties)
to enhance risk management and increase the likelihood that established objectives will
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be achieved. A given control may affect either the likelihood or consequences of a risk
or both.
Fire load – in simple terms, this is the total amount of heat that can be reasonably expected
ew
to be given off by all of the combustible materials that might burn in a fire compartment
or fire cell.
sN
Hazard – a source of potential harm (see AS/NZS 4360 Risk management) or (in the
Health and Safety in Employment Act 1992):
(a) An activity, arrangement, circumstance, event, occurrence, phenomenon, process,
situation, or substance (whether arising or caused within or outside a place of work)
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that is an actual or potential cause or source of harm; and
(b) Includes a situation where a person’s behaviour may be an actual or potential cause
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Fire and its consequences for people are therefore a hazard within the meaning of the
an
Act.
The Act also says that a significant hazard means a hazard that is an actual or potential
cause or source of serious harm. Fires can cause severe burns that may be life-threatening
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and cause long-term disability.
Insurance – a contract whereby the insurer agrees, for payment of a premium by the
ht
insured, to indemnify the insured against loss resulting from certain events. The policy is
the document which contains the insurance contract.
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Liability – a legal obligation or the obligation itself. A person who commits a wrong or
breaks a contract or trust is said to be liable or responsible for it.
py
Likelihood – the chance that something will happen in a given time frame. It is expressed
in terms of number of incidents per time period or series of activities.
Licensed Building Practitioner (LBP) – the licentiate must hold the relevant
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documentation from a certified organisation such as Building Research Association of

New Zealand, Master Builders Federation or an Educational Institution.
Occupational health and safety management system – that part of the overall
management system which includes organisational structure, planning activities,
responsibilities, practices, procedures, processes and resources for developing,
implementing, achieving, reviewing and maintaining the occupational health and safety
policy, and so managing the risks associated with the business of the organisation (see
AS/NZS 4801 Occupational health and safety management systems).
60
Organisation – a body, association, company, firm, enterprise, or other legal entity, whether
incorporated or not, public or private, that has its own function(s) and administration.
*
Place of work – a place (whether or not within or forming part of a building, structure, or
vehicle) where any person is to work, is working, for the time being works, or customarily
d
works, for gain or reward; and, in relation to an employee, includes a place, or part of a
n
place, under the control of the employer (not being domestic accommodation) provided
for the employee where the employee comes or may come to eat, rest, or get first-aid
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or pay; or
(a) Where the employee comes or may come as part of the employee’s duties to report
in or out, get instructions, or deliver goods or vehicles; or
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(b) Through which the employee may or must pass to reach a place of work.
Risk – the chance of something happening that will have an impact upon objectives.
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Risk is measured in terms of a combination of the consequences of an event and their
likelihood and may have a positive or negative impact.
Risk assessment – the overall process of risk identification, risk analysis and risk
evaluation. sN
Risk evaluation – the process of comparing the level of risk against criteria.
Risk management – the culture, process and structures that are directed towards realising
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potential opportunities whilst managing adverse effects.
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Stakeholders – specific people or groups who have a stake in the outcome of the
project. Normally stakeholders are from within the company, and could include internal
clients, management, employees, administrators, etc. A project may also have external
an
stakeholders, including suppliers, investors, community groups and government

organisations.
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APPENDIX B – SAMPLE WORKSHEETS
*
B1 – Fire risk context worksheet
d
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What sort of business do we operate?
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What are our objectives?
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Who are our most important suppliers of:
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Raw materials? (Who are they and what do
they supply?)
Plant and equipment? (Who are they and what

do they supply?) sN
Utilities e.g. electricity, water, gas, telephone,
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transport. (Who are they and what they
supply?)
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Who are our most important customers?

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Do we have contractors or subcontractors?

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If so, who are our most important contractors

or subcontractors and what do they do for us?
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How is our business structured?

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What operational activities do we operate?

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What equipment do we use to move and

process materials or stock, wrap or pack
Co
finished goods, etc?
What are our business functions? (Describe

using a flow chart or a site layout sketch.)
Page of Compiled by: Date:
62
Risk Cause(s) Controls / How often Consequences / Consequences Likelihood Risk level Consequences Likelihood Risk level
Effectiveness Outcome
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B2 – Fire risk analysis and evaluation worksheet
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ala
n d
*
63
FIRE RISK MANAGEMENT HANDBOOK SNZ HB 4525:2006
64
Level of risk
Risk treatment/reduction Risks reduced by Current After this Cost in $ Priority Recommended Who will be
this option option completion date accountable for
option this?
210.55.22.138
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SNZ HB 4525:2006 FIRE RISK MANAGEMENT HANDBOOK
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the best balance for the risk.
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B3 – Fire risk treatment option worksheet
sN
ew
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ala
n d
*
the cost/benefit of all the options, you decide which one, or which combination, provides
Use this worksheet to compile options for responding to risks. Once you have assessed
B4 – Risk severity matrix
Almost certain Medium High High Extreme Extreme
*
Possible Medium Medium High High Extreme
Likelihood
d
Unlikely Low Medium High High High
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Rare Low Low Medium Medium High
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Almost incredible Low Low Medium Medium High
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Consequences
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B5 – Fire risk treatment plan
Use this worksheet to collate your selected risk treatment/reduction options into a
sN
comprehensive plan that can be updated to show the current status of work.
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Risk treatment Owner of Status – how far Cost – show Priority – high Target
action action has work gone cost to date and medium or low completion
with this? estimated total date
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APPENDIX C – EXAMPLES OF RISK CONTROLS AND TREATMENTS

C1 Tables C1 to C12 of this Appendix summarise examples of risk controls and treatment
*
options under the broad headings of:
d
(a) Key features;
(b) Who should be accountable;
n
(c) Broad indication of control costs (high, moderate or low);
ala
(d) What needs to be communicated;
(e) What needs to be monitored;
Ze
(f) Where to get further information.
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Table C1 – Eliminate the fire hazard
Elimination of ignition sources Smoking rules Elimination of flammable liquids
*
– general and gases
d
Key features Removal of all ignition sources Although smoking is no longer This can eliminate a fire risk
n
from a specified area or building legal in places of work, some completely but may be expensive
in a workplace where there are people will be tempted to break or a long-term solution or both.
ala
flammable liquids or gases the rules. Clear, enforced rules on Such an approach can also
smoking inside the workplace and help achieve conformance with
the provision of a safe place for environmental management
Ze
smoking will reduce the risk. systems and resource consents
issued under the Resource
Management Act 1991.
ew
The general approach to
elimination of flammable liquids
and gases is to:
sN (a) Replace a flammable liquid

with a water-based equivalent;
(b) Substitute with less hazardous
materials or processes by re-
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engineering the process;
(c) Replace a low flashpoint
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flammable liquid with a high
flashpoint liquid.
It is possible to substitute less
an
hazardous solvents for flammable

solvents and there can be
considerable cost savings in doing
St
this.
Who should be Executive management for Senior management for rule Executive management for
ht
accountable? approval of the proposal and setting and (if required) the approval of the proposal and
capital expenditure. Local provision of a safe smoking place. capital expenditure. Local
management and employees for All employees and contractors for management and employees for
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continued exclusion of ignition observation of smoking rules continued exclusion of flammable

sources. liquids and gases
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Broad indication High Low Moderate

of control costs
What needs to be Prohibition of all portable Smoking rules The prohibition of flammable
Co
communicated? ignition sources being taken liquids or gases being taken into a
into an identified area specified part of the place of work
What needs to be Continued exclusion of ignition Observation of smoking rules Continued exclusion of the sources
monitored? sources of flammable liquids and gases
Further
Local Fire Safety Officer, insurance broker or insurance company
information
67
Table C2 – Reduce the likelihood – Control ignition sources
*
Relocate lights or other ignition sources Eliminate overloaded sockets or extension
cables
n d
Key features It may be possible to relocate lights or Overloaded sockets or needless use of extension
other ignition sources so they are not near cables can be avoided by providing enough power
ala
combustible materials points that are permanently wired to the electrical

system and near to the electrical equipment
Who should be Executive management for approval of the Executive management for approval of the
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accountable? proposal and capital expenditure. Local proposal and capital expenditure. Local
management and employees for planned management and employees for planned
inspections to detect changes in the fire inspections to detect changes in the fire risk
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risk
Broad indication Moderate Low

of control costs
What
needs to be
Why the lights or other ignition sources
have been moved
sN
Why extension cables are generally prohibited.
Why sockets must not be overloaded
communicated?
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What needs to Continued separation of lights or other Continued absence of overloaded sockets and
be monitored? ignition sources from combustibles extension cables
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Further Your local Fire Safety Officer, insurance Your registered electrician
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information broker or insurance company

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Regular testing of electrical equipment Static electricity suppression

St
Key features Regular testing of electrical equipment, Static electricity charges can sometimes be very
especially if it can be damaged while in large and can ignite flammable liquids or dusts.
use, may find faults that could ignite fires This is a specialist subject and requires special
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or give users electric shocks knowledge

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accountable? electrician or similar development of a budget
Broad indication Low Moderate

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of control costs
What All electrical equipment brought on site is Continued operation of any static electricity
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needs to be to be tested and certified safe before use elimination or control systems that are installed
communicated?
What needs to That the inspection system is continuing to Continued operation of any static electricity
be monitored? be operated and produce positive results elimination or control systems that are installed
Further AS/NZS 3760 In-service safety inspection AS/NZS 1020 The control of undesirable static
information and testing of electrical equipment electricity
68
Table C3 – Reduce the likelihood – Control hot work
Welding and hot work
*
Key features Uncontrolled welding and hot work causes many fires that are often larger than other fires. Key
d
features of an effective hot work control system include the following.
Employees and contractors may only carry out welding or hot work if they are trained,
n
competent and authorised.
Permit issuers should not also be people who carry out the hot work.
ala
The hot work is only permitted if it is not possible to substitute a different way of doing the job
such as removing the work to a safe place or cold work.
A safer place that has non-combustible walls and floors and that is kept clear of all
combustibles has been designated as a welding bay where welding or hot work is done.
Ze
No welding or hot work is allowed outside the safe place unless a permit-to-work has been
issued.
Before any permit is issued, the work location must be inspected for fire hazards and a permit
only issued after compliance with preparatory work. The preparation must include questioning
ew
why the hot work needs to be done at this location.
All permits-to-work must require fire risk reduction measures before the work starts. These may
include:
(a) Removal of combustibles from a 10-metre radius of the proposed work;
sN
(b) Covering any combustibles that cannot be removed with fire blankets;
(c) Ventilation of spaces where flammable vapours could accumulate;
(d) Checking behind walls for stored materials that could be ignited;
(e) If walls are to be worked on or heated by the welding, checking if they are constructed
from combustible materials or contain polystyrene insulation or other materials that could
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be ignited;
(f) Blocking up any holes in walls or floors through which sparks or hot slag could pass.
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210.55.22.138
(A) Enough charged hose reels laid out near to the hot work to promptly attack any fire that
does start;
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(B) During the work, have a person as a fire watcher who is armed with a fire extinguisher
and trained in fire fighting.
All permits-to-work must require fire risk control measures after the work is completed. For
St
example:
(1) Have a person as a fire watcher, armed with a fire extinguisher, for at least an hour after
the hot work has finished;
ht
(2) If the work finished towards the end of the working day, leave hoses and extinguishers
handy and require a security guard to visit the scene of the hot work hourly.
Who should be Maintenance management and employees; contractors carrying out maintenance or installation
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accountable? work
Broad indication Low

of control costs
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What All maintenance employees and contractors must be trained in the hot work control rules
needs to be
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communicated?
What needs to Compliance with in-house rules. Spot checks on individual hot work permits
be monitored?
Further Special hot work (e.g. on tyres, tanks or drums) may require additional precautions. Hot work on
information vessels or tanks can ignite fires and cause explosions. These fires can be fuelled by flammable
deposits, vapours or gases that are often invisible unless the vessels or tanks are properly
inserted and checked beforehand. See section 6 of NZS 4781 Code of Practice for safety in
welding and cutting and the Department of Labour booklet Hot work on drums and tanks.
AS 1674 Safety in welding and allied processes, Part 1: Fire precautions.
69
Table C4 – Reduce the likelihood – Control the fuels
Housekeeping Cooking in deep oil Dust and explosion risks
*
Key features Good housekeeping for fire safety Regular checks on Many dusts (including milk powder,
should be straightforward but details thermostats, high wood dust and flour) can explode
d
are often overlooked. The following temperature cut-outs and if they are ignited in a confined
guidelines apply to any housekeeping temperature controls should space. It is safest to assume that
n
programme: be carried out to ensure they such dusts will explode unless
are keeping the oil at a safe there is evidence to the contrary.
ala
(a) Cleaning schedules are defined
temperature. Special precautions will need to be

for all areas, including hard
taken if there is an explosion risk.
to reach places (e.g. machine A safe system of working for
rooms and ventilation ducts) and draining and filtering the oil This area requires specialist advice
modified if experience shows should be developed to avoid
Ze
cleaning is too frequent or burns and spillages
infrequent;
(b) The right cleaning equipment
and materials are provided;
ew
(c) Set accountabilities for
housekeeping and monitor
achievement of required
standards;
(d) Contractors are used for
specialist work such as access
to extract ventilation ducts to
sN
clean out dust or grease. This
may require shut-down of a
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process and special access
equipment;
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(e) Clean-as-you-go practices help

minimise cleaning at the end of
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the day;
(f) Consider setting a time at the
an
end of the day for final clean-

and tidy-up;
(g) Include an end-of-day shut-
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down and clean-up routine.

Who should be Local management for development Maintenance employees and Senior management for capital
accountable? and implementation of effective contractors who carry out expenditure to eliminate dusty
housekeeping. All employees and checks on equipment. processes or install dust control
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contractors for daily housekeeping systems.

Managers and employees
who work with deep oil for Maintenance and local
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maintenance of dust control

systems.
Contractors for compliance with
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fire safety rules

Broad indication Low Low High to moderate
of control costs
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What The who, when and how of good The when and why of routine Compliance with rules for the
needs to be housekeeping should be included in checks and safe operating control of dust to avoid fire and
communicated? location or task-specific training procedures explosion risks
What needs to Housekeeping standards should Compliance with procedures Compliance with in-house rules
be monitored? be monitored as part of the regular and housekeeping systems
inspection programme
Further Manufacturers and suppliers of Equipment manufacturers Consult your local Fire Safety
information cleaning equipment and materials for their instruction and Officer, insurance broker or
may provide advice and model maintenance manuals insurance company
cleaning schedules
70
Table C5 – Reduce the likelihood – Control the fuels – Building materials
Combustible building materials – Polystyrene insulated panels
*
Key features Polystyrene cored insulated panels are a popular building material used for cladding and
d
structural elements, especially in the food industry where high standards of hygiene are
required. Whilst most of the core material in these panels used in New Zealand have been
n
treated with a fire retardant and they may not be the first item to be ignited, such panels are
ala
known to burn to producing dense black smoke (making evacuation difficult) and they may
delaminate and collapse at relatively low fire temperatures (typically 150 – 200 oC). Fire ignition
of the core material is often due to hot work, hot processes operations on, or adjacent to the
Ze
panels, fires in adjacent combustible materials such a stack of idle timber pallets, hot process
plant passing through the panels and electrical faults.
Ignition of polystyrene insulated panels is prevented by:
ew
(a) Installation of panels strictly in accordance with the manufacturer’s specifications and
detailing;
(b) Strict hot work controls;
(c) High standards of electrical safety;
sN
(d) Avoidance of hot processes in contact with the panels, e.g. unprotected flues, light fittings,
etc. inset or passing through the panels;
(e) Protection of openings and penetrations that less can expose the polystyrene core to heat
rd
sources;
(f) Preventing damage to the steel skins of the panels exposing core material.
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210.55.22.138
Managers who let contracts for the design and construction of new buildings or alteration of
accountable? existing buildings.
an
Maintenance staff who supervise contractors who carry out work near to polystyrene insulated
panels.
Contractors who carry out work near to polystyrene insulated panels.

St
Broad indication Moderate

of control costs
ht
What The high fire risks due to polystyrene insulated panels must be communicated to all staff and
needs to be contractors who work on such panels. They must also know how to prevent fires in such panels
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communicated?
What needs to Compliance with in-house rules

be monitored?
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Further Further technical information is in Research Report 45 Improving the Fire Performance of
information Polystyrene Insulated Panel in New Zealand published by the NZ Fire Service Commission,
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Wellington, NZ
71
Table C6 – Reduce the likelihood – Management and administrative controls
Training and competency Regular inspections
*
Key features A fire risk management system may require, Planned weekly or (for low-risk places of
d
for example, training to achieve the following work) monthly inspections can help identify
competencies: failure of controls and changed or new
n
fire hazards. Use a team of people from
(a) Proper housekeeping to minimise a build-
ala
different groups to carry out inspections and

up of combustible materials inside and
equip them with a checklist focused on your
outside the workplace;
workplace hazards. A checklist will need to
(b) Inspection and testing of portable
Ze
include:
electrical equipment;
(c) “Approved handler” competencies under (a) Your ignition sources (evidence of
the Hazardous Substances and New unauthorised smoking, overheating
Organisms Act 1996 for employees who equipment, damaged electrical
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work with hazardous substances – such equipment, etc.);
training may be arranged through industry (b) Housekeeping in relation to the
training organisations; combustibles on your site (excessive
(d) The correct use of portable fire
extinguishers.
sN quantities of packing materials,
flammable liquids, scrap and waste, etc.);
(c) Safety signs (obstructed, missing,
For both employees and contractors,
damaged, etc.);
rd
competence can be demonstrated by
(d) Fire-fighting equipment (obstructed,
successful completion of relevant industry
missing, discharged, damaged, etc.);
training organisation standards supplemented
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(e) Fire doors and windows (obstructed,

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by in-house training on your own rules and

damaged, etc.)
policies.
Apart from rotating who carried out the
an
inspection, consider changing the time of

day and day of the week when inspections
are carried out.
St
In addition to remedying any deficiencies,

ask “why did this happen?” and remedy the
ht
causes of the deficiencies.
Who should be A senior manager who develops training Local management and teams of employees
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accountable? for all employees. Contractors who should who can carry out inspections in their own
demonstrate the competence of their areas or with colleagues from other areas
employees
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Broad indication Moderate Low

of control costs
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What needs to be Compliance with legal requirements and in The need for continued, planned inspections
communicated? house rules for training and fire safety and the outcomes of those inspections
What needs to be Achievement of agreed training and That planned inspections are actually being
monitored? competence carried out and producing positive results
Further Your industry training organisation Your insurance broker or insurance company
information
72
Table C7 – Reduce the likelihood – Legal compliance
Building Warrant of Fitness Hazardous Substances and New Signs
*
Organisms Act requirements
d
Key features Annual testing of building There will be specific requirements Signs should identify escape
systems, including air for the transport, handling, storage, routes, emergency related
n
conditioning and heating use and disposal of many flammable features and potential
systems and electrical liquids and gases. Find out which hazards. They should be
ala
systems, may be required apply to your workplace and clearly visible under normal
for many places of work. implement them. circumstances and fire exit
Check if a Building Warrant signs should be visible in the
A simple safety principle is VICES:
of Fitness is required for the event of failure of the power
• Ventilation of places where
Ze
building your workplace is in. supply. Some signs are
If so, there may be specific flammables are used or could be required under the Building
requirements for testing and spilled. Act 2004 and must be
inspections that you are • Ignition sources have been maintained as a requirement
required to carry out. removed. of the Building Warrant of
ew
• Containment of flammable liquids Fitness
is achieved by the use of lidded
containers and spillage catchment
trays.
a less flammable one. sN

• Exchange of a flammable liquid for
• Separation of the area where

flammable liquids are stored or
used from other work areas.
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Under the HASNO Act and HASNO
Regulations there are requirements for
all sites that use or store hazardous
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materials to formulate adequate
emergency plans
Who should be Local management for design Executive management for Maintenance employees
an
accountable? and operation of inspection approval of the proposal and capital

and maintenance programmes expenditure. Local management and
for building systems employees for continued operation of
St
VICES
Broad indication Moderate High to moderate Low

of control costs
ht
What The what and why of planned Specific legal requirements under The need to keep signs clear
needs to be inspections the Hazardous Substances and New and in good condition
communicated? Organisms Act.
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The what and why of VICES
What needs to The continued, effective Continued implementation of Changes to risks that require
be monitored? inspection and maintenance Hazardous Substances and New signs or the updating of
py
of building systems must Organisms Act requirements and existing signs

be monitored as well as the VICES
planned inspection of specific
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building systems
Further Your territorial authority Your Hazardous Substances and BS 5378: Safety signs and
information for information about the New Organisms Act regulatory colours Part 1 Specification
compliance schedule and agency, ERMA, local Fire Safety for colour and design and
Building Warrant of Fitness Officer, insurance broker or insurance AS 1319 Safety signs for the
requirements company occupational environment.
Your territorial authority

can tell you what is in the
compliance schedule for
your building
73
Table C8 – Reduce the consequences – Automatic fire suppression systems
Automatic sprinkler systems Gas flood systems
*
Key features Sprinkler systems may be required for new Gas flood systems are actuated by sensors
d
buildings. Existing and new systems will and release an inert gas into an area.
be covered by Building Warrant of Fitness The inert gas reduces the oxygen in the
n
requirements under the Building Act. area to a level that will no longer sustain
ala
combustion.
A sprinkler system is designed to:
Gas flood systems are custom designed
(a) Detect a fire in the early stages of
to protect confined spaces and are very
Ze
development;
efficient in extinguishing fires in difficult
(b) Give a warning to the occupants of the enclosed spaces, such as enclosed
building; machinery and small high value rooms
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(c) Send a signal to the Fire Service; such as computer suites.
(d) Control the fire. To be effective they require the space

being protected to be reasonably sealed
A sprinkler system operates by spraying water
directly onto the fire and will normally limit the
fire to the area under two or three sprinkler
sN
to prevent the leakage of the suppressant
gas.
heads. Only those sprinkler heads directly in For safety reasons and to minimise false
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the heat plume will operate. alarms the systems are actuated by the
operation of two detectors (double knock)
Normally, a sprinkler system will protect a and an audible alarm must sound on the
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whole building and has a large enough water detection of any outbreak of fire. There
supply to control a fire before the Fire Service must then be a delay of not less than 30
arrives. seconds designed into the system before
an
the gas is discharged.

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Effect on the risk Reduces the consequences Reduces the consequences
Who should be Maintenance employees and contractors for routine testing and maintenance
ht
accountable?
Broad indication of High to moderate

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control costs
What needs to be Training of relevant new and current staff on how and when such a system operates and why
communicated? it must not be impaired, especially if hot work or other high risk activities are planned
py
What needs to be Impairments, routine testing and maintenance

monitored?
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Further Your territorial authority, Fire Safety Officer, insurance broker or insurance company, service or
information equipment providers
NZS 4541 Automatic sprinkler systems AS 4214 Gaseous fire extinguishing

systems
74
Table C8 – Reduce the consequences – Automatic fire suppression systems (continued)
Foam systems Fusible link and lid systems
*
Key features An automatic foam flood system may be a Open-topped tanks or vats containing
d
good way of blanketing a fire in a tank or vat of flammable liquids can be protected by a
n
flammable liquid hinged metal lid held open by a fusible link.
Melting of the link by a fire will cause the lid
ala
to close and remove the supply of oxygen.
Only protects individual high risk plant and

equipment, e.g. kitchen ranges, deep fat
Ze
fryers, tanks or vats.
Effect on the risk Reduces the consequences of a fire. Reduces the consequences of a fire.
ew
Not appropriate for a whole building. Not appropriate for a whole building.
Who should be Maintenance employees and contractors for routine testing and maintenance.
accountable?
Broad indication of
control costs
High to moderate sN Moderate to low
What needs to be Training of relevant new and current staff on how and when such a system operates and why
rd
communicated? it must not be impaired, especially if hot work or other high risk activities are planned
What needs to be Impairments, routine testing and maintenance

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Further information Your territorial authority, Fire Safety Officer, Your local territorial authority, Fire Safety
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insurance broker or insurance company, service Officer, insurance broker or insurance

or equipment providers company, service or equipment providers
St
ht
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Emergency preparedness and response has been broken into a sequence of four
stages:
(a) Raising the alarm;
*
(b) Evacuation;
d
(c) Emergency response with fire extinguishers and hose-reels;
n
(d) Business continuity planning.
ala
Table C9 – Evacuation, emergency preparedness and emergency response
Raising the alarm Evacuation
Ze
Key features Automatic fire detection systems provide 24-hour fire Emergency evacuation plans are required for
detection, so facilitating prompt evacuation. They are most places of work under the Fire Safety
designed to: and Evacuation of Buildings Regulations
• Detect an outbreak of fire in the early stages of 1992.
ew
development Additionally, the Hazardous Substances and
• Give a warning of fire to the occupants of the building New Organisms Emergency Management
• (Where the alarm system is connected to the Fire Service) Regulations 2004 require emergency
send a signal to call the Fire Service. management plans to be implemented and
An automatic fire alarm system fitted with heat or smoke

detectors and that fully complies with NZS 4512 will have a
sN tested for high risk activities.
Regardless of whether such plans are legally
required, it is good practice to develop plans
high likelihood of quickly detecting a fire in its early stages
that enable the prompt evacuation of all
and signalling an alarm to a monitoring station.
employees and visitors. Sometimes, it may
rd
Note that once the alarm has been signalled, you will be be necessary to include neighbours in the
dependent on the Fire Service being able to attend and evacuation plans. For example, in a multi-
having sufficient water to mount an effective attack on any occupied building the landlord will include all
da
1692218
210.55.22.138
fire (see SNZ PAS 4509). Fire alarms that do not comply tenants in the plan
with NZS 4512 may not be as effective.
Fire alarm systems that are not connected to a monitoring
an
station will only provide limited local response to any

activation.
Manual fire alarm systems depend on a person activating
St
the alarm and so are less reliable than an automatic alarm.

Who should be Senior management for capital expenditure to install an Responsibility for control of fire emergencies
accountable? automatic fire alarm. should be allocated to specified individuals
Maintenance and local management for maintenance and and all employees given appropriate training
ht
testing of an alarm. in the emergency procedures

Broad indication of Moderate Low
control costs
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What needs to be Employees and contractors should be told that activation of Fire emergency instructions and emergency
communicated? the alarm requires evacuation to a safe place. contacts should be clearly communicated
Impairments to any automatic fire detection system must be throughout the building
py
notified to your insurers and when the system is connected

to the Fire Service.
What needs to be Impairments to systems, routine testing and maintenance of Fire emergency equipment, exit signs and
Co
monitored? the alarm system to ensure compliance with NZS 4512 and alarm systems should be inspected, tested
the Building Warrant of Fitness (existing and new systems and maintained at regular intervals.
will be covered by Building Warrant of Fitness requirements Fire evacuation drills should be held regularly
for servicing and maintenance). (the Regulations require drills to be held six-
monthly).
The suitability, location and accessibility
of fire emergency equipment should
be assessed as part of the site fire risk
assessment
Further Your territorial authority or local Fire Safety Officer
information NZS 4512 Fire detection and alarm systems in buildings
76
Table C9 – Evacuation, emergency preparedness and emergency response (continued)
Emergency response – fire extinguishers Business continuity plan
*
and hose-reels
d
Key features Portable fire extinguishers and hose reels are An effective business continuity plan will cover
relatively easy to use but to be effective, they need loss of key suppliers, utilities (including electricity,
n
to be distributed and their positions marked so gas, water, telecommunications, transport and
that they can be quickly found and used. Different wastewater), buildings and assets you depend on
ala
extinguishers are used on different combustibles. and customers. You may also need to include crisis
communications with your key stakeholders
Who should be Maintenance employees for the routine inspection Senior managers
Ze
accountable? and testing of fire extinguishers.
All employees and contractors should know how to

use the portable fire extinguishers and hose reels
provided in your place of work
ew
Broad indication Low Low
of control costs
What needs to be Which extinguishers should be selected and how to How the plan will work in practice
communicated?
What needs to be
use them
Monthly inspection of extinguishers to confirm they

sNLike your evacuation plan, your business continuity
monitored? are present and in good condition. Annual servicing plan should be tested from time to time and revised
and testing as circumstances change.
rd
Assess your circumstances (see 5.2) to see if they
have changed.
da
Further 1692218
210.55.22.138
Your local Fire Safety Officer, insurance broker, A specialist consultant or your insurance broker or
information insurance company or fire extinguisher supplier can insurance company.
advise on the correct type of extinguishers for your
For further guidance, see SAA/SNZ HB 221
an
place of work.
Business continuity management
NZS 4503 Hand operated fire-fighting equipment
AS/NZS 1841 Portable fire extinguishers.

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Note – this is a family of standards and you should

require that any extinguisher complies with
AS/NZS 1841.
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AS/NZS 1221 Fire hose reels

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77
Table C10 – Risk isolation
Isolate high fire risk activities
*
Key features This entails moving high-risk activities to a:
d
(a) Separate fire compartment detached from the rest of the building by a good fire wall and fire
n
door; or a
ala
(b) Building remote from the main buildings.
Generally, a separation of 10 metres will prevent a fire in the high-risk building spreading into
other buildings. If the high-fire risk activity is in a fire compartment connected to the rest of the
Ze
building, it may be necessary to provide both automatic, self-closing fire doors and a sprinkler
system in the whole building to prevent fire spreading through any openings.
In some cases, it may be possible to provide engineering controls to prevent access to a process
ew
while it is operating.
Who should be Executive management for approval of the proposal and capital expenditure. Local management
accountable? and employees for continued isolation of high risk processes
Broad
indication of
High to medium sN
control costs
rd
What Why the fire compartment or separate building is isolated from the rest of the site and how to
needs to be control the higher fire risks inside the compartment or building
da
What needs to Continued operability of automatic, self-closing fire doors between fire compartments
1692218
210.55.22.138
be monitored?
Compliance of any sprinkler system with NZS 4541 or NZS 4515
an
Integrity of any fire walls, ceilings and floors. Any penetrations of a fire compartmentalisation
shall be adequately sealed with a proprietary material provided the required degree of fire
St
resistance is met.
Further Local Fire Safety Officer, Building Officer of the territorial authority, insurance broker or insurance
information company
ht
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Table C11 – Risk sharing
Contract with a third party to carry out the Insure assets against fire
*
activity on your behalf
d
Key features There may be times when an activity poses Insurance for the protection of your assets will
a high risk of fire and reducing the risk to smooth the costs of any losses (including fire) in
n
an acceptable level on your site is not cost- exchange for the insurance premium. However,
ala
effective. A third party who has invested in the insurance market fluctuates so it may be
special equipment may be well placed to difficult to budget accurately for future costs of
carry out such a high risk activity more safely premiums. Insurance is often best applied to
than you. They may charge a premium for large or catastrophic losses that could put you
Ze
this work, especially if their investment was out of business
large and they need a good return on their
investment.
ew
Remember that you have a duty under section
18 of the Health and Safety in Employment
Act to ensure the safety of employees of any
contractor. In this case, you will need to be
sure that the contractor really does have safer
sN
plant or systems than you
rd
Who should be A senior manager who has authority to The manager who buys insurance
accountable? negotiate a contract and understand your
da
legal responsibilities under the Health and

1692218
Safety in Employment Act for the safety of

210.55.22.138
employees of any contractor

an
Broad indication High to moderate Moderate

of control costs
St
What The contractor must be informed about Any special requirements of insurers for fire
needs to be hazards associated with materials in your safety
communicated? process
ht
What needs to Arrangements for protecting the safety of Compliance with any insurers requirements and
be monitored? employees of the contractor annual costs of insurance and the level of the
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insurance excess
Further SAA HB 240 Guidelines for managing risk in Your insurance broker or insurance company.
py
information outsourcing provides guidance on contracting

SAA HB 141 Risk financing guidelines contains
out
further guidance on risk finance, including
insurance
Co
79
Table C12 – Special cases – Arson and construction
Arson Construction work
*
Key features No part of New Zealand is immune from the Construction work typically results in the
d
growing risk of arson. Serial arson attacks use of equipment and hot work in ways
n
require collaboration between the Police, that are less controlled than in other places
Fire Service and communities that are of work. It therefore poses a higher fire
ala
affected. The following is general guidance for risk. Commonsense fire prevention during
individual sites only. construction work includes:
Arson prevention requires: • Safe storage of LPG cylinders in well-
Ze
• Good relations with neighbours and staff ventilated and secure areas
vigilance • LPG supplies turned off when not in use and
• High standards of housekeeping, especially LPG equipment properly maintained
ew
in outside areas and yards
• Hot work and welding controls
• Good site security that may need to include:
– a good perimeter fence with securely • Avoiding stockpiles of combustible building
mounted lockable gates
– external lights mounted on the main
buildings to light up any yard and
sN materials
• Avoiding burning waste on site.
outside doors and windows

rd
– avoiding stacking goods near boundary
fences where they may attract thieves or
da
provide places to climb over the fence

1692218
securing tools, plant and equipment

210.55.22.138
inside buildings
an
– locking away flammable liquids and

locking off valves, taps and controls for
flammable liquids
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– keeping rubbish either in locked bins

or in a locked compound away from
buildings
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– security guard patrols when the site is

not operating.
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Who should be Senior managers A senior manager who is the project sponsor
accountable?
Broad indication Moderate to low Moderate to low

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of control costs
What The need for good security and housekeeping Your fire safety requirements must be
Co
needs to be communicated to the contractor

communicated?
What needs to Compliance with the arson prevention Compliance with your fire safety requirements
be monitored? measures
Further Your Fire Safety Officer, Certified Tester, insurance broker or insurer
information
80
APPENDIX D – LEGAL RESPONSIBILITY
*
D1 Introduction
d
The purpose of this Appendix is to help you learn to recognise your legal responsibilities
n
and their associated risks in relation to fire in places of work rather than to identify all legal
risks for organisations. Where you identify an exposure to a specific legal risk, you need
ala
to analyse the risk to understand the possible consequences for your organisation, and
how likely they are to happen. If you don’t have the knowledge or expertise to do this, you
should research further or seek specialist legal advice.
Ze
There are many sources of legal responsibility. Legal requirements can be codified into
statutes and local authority bylaws, developed through judges’ decisions (common law),
or created by contracts.
ew
D2 Statutes and Regulations
By definition, we must comply with all statutes. However, our risk of breaching some
statutes is greater than for others, depending on what we are doing. There are certain
sN
statutes that all organisations should be familiar with, and others that are applicable to
particular activities.
rd
D2.1 Workplace legislation
All employers must be aware of their responsibilities under a variety of Acts relating to
the workplace including the:
da
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(a) Building Act 2004;

210.55.22.138
(b) Health and Safety in Employment Act 1992;

an
(c) Hazardous Substances and New Organisms Act 1996;
(d) Fire Service Act 1975 and Fire Safety and Evacuation of Buildings Regulations
St
1992.
D2.2 Building Act 2004

ht
The Building Act governs how buildings are to be constructed, maintained and occupied.
The New Zealand Building Code (NZBC) is part of the Building Regulations made under
the Act. The Code contains an objective, a functional requirement and performance criteria
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for the different aspects of a building. These aspects of building are referred to as the
NZBC Clauses.
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The NZBC does not contain prescriptive requirements. It states how a building is to perform
(given in qualitative or quantitative terms), but does not prescribe detailed requirements
for design and construction. Such details are found in the non-mandatory compliance
Co
documents, which the Department of Building and Housing produces to help people meet
the requirements of the Building Code.
Six of the 34 clauses are specifically concerned with fire safety matters. They are: outbreak
of fire; means of escape; spread of fire; structural stability during fire; hazardous substances
and processes; warning systems. ➤
81
Because the Act is performance-based, there are many different ways of achieving
compliance. However, the Act requires that an Acceptable Solution to satisfy each Clause
of the NZBC be published for building owners to use. Any Alternative Solution used by
*
the building owner to satisfy the NZBC must be comparable to the level of construction
provided by the Acceptable Solution.
d
Over and above the construction of a building, the Act requires that a building be maintained
n
to the standard to which it was constructed. For buildings built since the Building Act 1991
ala
this is the NZBC. For earlier buildings this will be whatever standard was applicable at
the time of construction. An owner of an older building is under no obligation to satisfy

the NZBC unless they choose to do building work, or unless the building is dangerous
or insanitary.
Ze
Continuing compliance of a building with the standards to which it was constructed is
required. Buildings that contain specified systems must be issued with a compliance
schedule. The schedule states the systems which are in the building and frequency
ew
of testing, maintenance and inspection that must be done. The majority of this work is
required to be performed by an appropriately qualified and skilled individual, referred to
as a Licensed Building Practitioner (LBP).
sN
If a compliance schedule has been issued for a building the owner must issue an annual
building warrant of fitness. This can only be issued once the owner has received certification
from an LBP for each specified system that is on the compliance schedule. The certification
rd
states that the LBP has performed the maintenance testing and inspection specified on
the compliance schedule, and that the specified system continues to satisfy its design
performance criteria.
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1692218
It is a criminal offence to allow a building to be used or occupied if it is dangerous. Fire

210.55.22.138
safety matters are primary considerations in determining if a building is dangerous. The

an
New Zealand Fire Service can be asked to provide a council with advice about fire safety
matters. Additionally, failure to maintain a specified system can also result in a declaration
that a building is dangerous.
St
In summary, the Building Act plays a big part in fire safety and fire risk management that
places obligations on an owner not only during construction, but also throughout the life
of the building.
ht
D2.3 Health and Safety in Employment Act 1992

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The Health and Safety in Employment (HSE) Act has particular relevance to managing
fire risk in New Zealand in that it contains specific safety requirements for employers,
employees and contractors. The Act contains requirements for injury prevention,
py
responding to incidents and reporting cases of serious harm.

Employers have a duty to take all practicable steps to identify workplace hazards that could
harm employees and others and either eliminate, isolate or minimise significant hazards.
Co
In some cases, personal protective equipment may be required. Employees must be

consulted about the hazards and the development and implementation of controls.
The term “all practicable steps” is defined to include the phrase “so far as is reasonably
practicable”. The term reasonably practicable recognises that perfect safety is unattainable.
However, employers and others are required to think about risks in the workplace before
harm has happened. One way of doing this is to ask how much effort in time and money you
need to expend to prevent harm that is foreseeable, taking account of current knowledge
and technology.
82
If it will take much effort to prevent trivial harm, it is likely that the courts would find that
all reasonably practicable steps will have been taken. If the level of potential harm is
severe it is likely that the courts would expect considerable effort to have been expended
*
to prevent the harm.
d
D2.4 Hazardous Substances and New Organisms Act 1996
n
The Hazardous Substances and New Organisms (HSNO) Act 1996 reformed the law
relating to the management of hazardous substances and new organisms in New Zealand.
ala
In relation to hazardous substances, the Act replaced the Dangerous Goods Act 1974, the
Explosives Act 1957, the Pesticides Act 1979 and the Toxic Substances Act 1979. The Act
provides for a co-ordinated and integrated approach to the management of hazardous
Ze
substances and, in particular, provides a management framework that takes account of
all the hazardous properties a substance may have. Further information is available in
Environmental Risk Management Authority publications (e.g. the User Guide to the HSNO
ew
Control Regulations).
A substance is considered hazardous under the HSNO Act if it triggers any one of the
threshold levels for any of the following hazardous properties:
(a) Explosiveness;
(b) Flammability;
sN
(c) Oxidising capacity;
rd
(d) Corrosiveness;
(e) Toxicity;
da
(f) Ecotoxicity.
1692218
210.55.22.138
Of these, our main interest lies with substances that are explosive, flammable or oxidising.
an
However, toxic and ecotoxic substances can adversely harm people or the environment
during, or as a result of, a fire.
If you use one or more substances that have such properties you need to find out what
St
controls the Act requires you to apply. Special care needs to be taken if two or more
substances could combine to react and produce hazardous results. For a layperson, such
reactions can produce unpredictable results.
ht
D2.5 Fire Service Act 1975 and Fire Safety and Evacuation of Buildings Regulations 1992
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The Fire Safety and Evacuation of Buildings Regulations 1992 require there to be
approved evacuation schemes or procedures for places of work and the plans must be
tested every six months.
py
D2.6 Crimes Act 1961

All organisations need to be aware of the Crimes Act 1961. This Act defines an “offence”
Co
as “any act or omission for which any one can be punished under this Act or under any
other enactment ...”.
The Act itself defines a wide range of crimes; in this context, those against people
(manslaughter, criminal nuisance, injuring by an unlawful act, etc.) are perhaps most
relevant. For people and organisations which undertake dangerous acts or who are in
charge of dangerous things, the Act imposes duties to take reasonable care to avoid
danger to human life. Criminal responsibility then arises only if, in the circumstances, the
failure is a major departure from the standard of care expected of a reasonable person
in those circumstances.
83
Conclusion
It would be impractical to attempt to set out in this Handbook all the legislation that may
apply to fire risks in places of work and all of the offences contained in New Zealand
*
legislation that organisations might be at risk of committing. Your risk identification strategy
d
should include reviewing the organisation’s activities, support processes, and functions
and thinking about what legislation applies. Appendix C includes references to useful
n
legal resources.
ala
D3 Common Law
Ze
Common law is also referred to as “judge-made law.” It is not written into statute, but is
based on decisions made through a long history of court proceedings.
Common law allows individuals to sue each other for “damages” (compensation) for “civil
ew
wrongs” (also known as “Torts”). This differs from the idea of “crime” which allows the
state to punish you for wrong-doing. There are specific types of Torts including (but not
limited to) defamation, nuisance and negligence.
D3.1 Nuisance sN
This means using your land in a manner that would unreasonably affect the use of adjacent
land by the owner or occupier of that land.
rd
D3.2 Negligence
Negligence arises if you don’t take “reasonable steps” to prevent your activities causing
da
foreseeable harm to a person or property in a proximate relationship to you.

1692218
210.55.22.138
A “proximate relationship” taken literally means “near” you; in this context it means anyone
an
or anything that you can see, or that you should know, is in the vicinity of potential harm.
If you own or manage an activity, you know that the activity will affect other people. Those
people may be passers-by, neighbours or the general public and may be unaware of your
St
activity. You need to consider carefully whether anyone could face some harm as a result
of the activity, about what could happen and how, and how to prevent it.
If you should have foreseen harm and didn’t, and damage or injury results, you may find
ht
yourself held liable.

Assessing what will amount to “reasonably practicable steps” depends on the circumstances
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of each activity, but it would encompass things like ensuring that you properly planned
an activity, applied a risk management process, and effectively communicated the risk to
those who might be in harm’s way.
py
While the ACC scheme generally removes the right of individuals to sue for damages for
personal injury, they can sue if their injury is not covered by ACC. In the case of “gross
negligence,” you could be sued for “exemplary damages.” Gross negligence is a reckless
Co
disregard for the safety of others. A person would be grossly negligent if, even though they
may not have directly intended to cause harm, they intentionally avoided taking reasonable
care to prevent harm. Exemplary damages are designed to separately punish a grossly
negligent person, over and above any compensation for the person who was hurt.
D3.3 Strict liability

In one important court case (Rylands v Fletcher) it was held that if you bring something
dangerous onto your land, you must take extra precautions to prevent it from escaping
84
and causing harm to other people or their property. This means that if you operate some
process that frequently causes minor fires that could escape into neighbouring properties,
the process must be especially well controlled. You may have a strict liability for any harm
*
against which it is difficult to mount a defence if fire or something else dangerous does
escape.
n d
D4 Contracts
ala
D4.1 General
Contracts are enforceable agreements but they are not always in writing. Contracts always
involve an exchange, for example, of money given for goods or services. A contract will
Ze
include performance requirements for each party. For instance, it will set out for one
party the amount of money, and how and when it will be paid, and for the other party, the
goods or services, when they will be delivered or performed and what quality standards
they must meet.
ew
A contract can be for any number of arrangements including:
(a) For employment;
sN
(b) To engage a person to carry out some physical work for you;
(c) To engage a person to provide help or advice;
(d) A lease.
rd
Contracts can be used by the principal and the contractor to agree who is responsible
for which aspects of safety, including fire safety. They may also make requirements for
da
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210.55.22.138
insurance.
D4.2 Pre-contract stage

an
It is increasingly common for the principal to establish a list of pre-qualified, preferred

suppliers who are known to have:
(a) employees with the necessary qualifications and skills to do the required work;
St
(b) the right plant and equipment to do the required work;
(c) a history of completing the required type of work on time and budget with few or no
ht
losses.
D4.3 Contract conditions

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As a general rule, contracts should contain conditions that are practical and can actually
be implemented. And – you cannot contract your way out of a legal obligation imposed
by legislation!
py
For further information on contracts see NZS 3902, NZS 3910 and NZS 3915.
Co
D5 Conclusion
While the list of potential legal compliance exposures is enormous, you shouldn’t be unduly
worried. Many of the compliance requirements that are important here can be covered
by a management system. Events will happen, and most of us will naturally work to avoid
them if they might hurt us or others. If you are able to demonstrate that you maintained
an awareness of risks and hazards, took all reasonable steps to mitigate them, and had
measures in place to deal with an emergency, you may avoid liability.
When you are unsure, seek expert advice.
85
APPENDIX E – RESOURCES
*
The guidance set out in table E1 is designed to assist you to understand fire risk
management in the New Zealand context. It provides a framework for thinking about
d
business risks, injury risks and legal compliance. It cannot, however, provide a complete
n
list of risks and treatments for all organisations. The table below is designed to help you
identify sources of information to assist you to locate further information on:
ala
(a) Risk management generally;
(b) Fire risks;
Ze
(c) Legal compliance;
(d) Injury risk management.
Important risk management resources include published information, other organisations
ew
delivering similar products or services and paid advisors including lawyers and
consultants.
Table E1 – Sources of information
Information area
sN Website
Risk management generally
rd
AS/NZS 4360 Risk management and SAA/SNZ HB 436 www.standards.co.nz
Risk management guidelines
da
Australian standards
1692218
www.standards.com.au
210.55.22.138
New Zealand Society for Risk Management www.risksociety.org.nz

Global, e.g. the Institute of Risk Management www.theirm.org
an
Fire risks
New Zealand Fire Service www.fire.org.nz
St
Fire Protection Association of New Zealand www.fireprotection.org.nz

Department of Building and Housing www.dbh.govt.nz
Building Research Association of New Zealand Inc. www.branz.org.nz
ht
Department of Chemistry, University of Akron (covers

ull.chemistry.uakron.edu/erd
chemical hazards)
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The US National Fire Protection Association www.nfpa.org

Institute of Fire Engineers NZ www.ife.org.nz
py
Society of Fire Protection Engineers www.sfpe.org

US Fire Administration www.usfa.fema.gov/index.shtm
Legal compliance
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New Zealand legislation www.legislation.govt.nz

ERMA www.ermanz.govt.nz
Injury risk management
ACC www.acc.co.nz
OSH / Department of Labour www.dol.govt.nz
Emergency management
Ministry of Civil Defence and Emergency Management www.mcdem.govt.nz
86
For specific fire risks, a library or web search on key words related to the activity will
usually return useful targets from New Zealand and around the world.
NOTE – Just because an organisation has published a guide, it isn’t necessarily best practice.
*
You must still apply judgement before applying any advice. This is especially true for any
d
overseas websites where other legislation may apply.
n
ala
Ze
ew
sN
rd
da
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ht
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87
210.55.22.138
1692218
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an
15
73
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NOTES
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ala
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*
SNZ HB 4525:2006
© 2006 STANDARDS COUNCIL
Published by authority of the Standards Council pursuant to the provisions of section

10 of the Standards Act 1988.
First published: 18 May 2006
The following SNZ references relate to this Standard:
Project No. P 4525

Draft for comment No. DZ 4525
Typeset and printed by: Standards New Zealand

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New Zealand Handbook

Aon New Zealand Ltd

part of it may be reproduced by photocopying or by any other means without the

to a fine not exceeding $50,000 or to imprisonment for a term not to exceed

to obtaining injunctive relief and an account of profits.

1.1 Purpose of this Handbook.................................................................9

3.6 What happens when items in a room catch fire?............................19

3.7 What is flashover?...........................................................................19

3.8 How do we detect fires?.................................................................20

4 A Framework for Managing Fire Risk............................................23

4.3 Responsibility and accountability....................................................23

5 The Risk Management Process and Fire Hazards......................27

C5 Reduce the likelihood – Control the fuels – Building materials....................71

C6 Reduce the likelihood – Management and administrative controls..............72

C8 Reduce the consequences – Automatic fire suppression systems..............74

7 Business processes in kitchen unit company..............................................31

NZS 4512:2003 Fire detection and alarm systems in buildings

NZS 4515:2003 Fire sprinkler systems for residential occupancies

NZS 4781:1973 Code of practice for safety in welding and cutting

SNZ PAS 4509:2003 sN

JOINT AUSTRALIAN/NEW ZEALAND STANDARDS AND HANDBOOKS

AS/NZS 1221:1997 Fire hose reels

AS/NZS 1841:1997 Portable fire extinguishers (all Parts)

AS/NZS 3760:2003 In-service safety inspection and testing of electrical equipment

AS/NZS 3931:1998 Risk analysis of technological systems – Application guide

AS/NZS 4360:2004 Risk management

AS/NZS ISO 9000:2000 Quality management systems series

AS/NZS ISO 14000 (Set) Environmental management standards series

SAA/SNZ HB 221:2004 Business continuity management

SAA/SNZ HB 436:2004 Risk management guidelines

AUSTRALIAN STANDARDS AND HANDBOOKS

AS 1319:1994 Safety signs for the occupational environment

AS 1674.1-1997 Safety in welding and allied processes – Fire precautions

AS 4214:2002 Gaseous fire extinguishing systems

SAA HB 141:1999 Risk financing guidelines

SAA HB 240:2004 Guidelines for managing risk in outsourcing

SAA/SNZ HB 436:2004 Risk management guidelines ➤

C – Fire Safety in Buildings

D2 – Mechanical installations for access

F1 – Hazardous agents on site

F2 – Hazardous building materials

F3 – Hazardous substances and processes

F4 – Safety from falling

F5 – Construction and demolition hazards

F6 – Lighting for emergencies

G12 – Water supplies

NEW ZEALAND LEGISLATION

Hazardous Substances and New Organisms Act 1996

Hazardous Substances Regulations 2001 – 2004

Health and Safety in Employment Act 1992

New Zealand Building Code 1992

Zealand Standards can be found on www.standards.co.nz

Fire Risk Management Handbook

commerce, community services, infrastructure and other activities.

The Handbook is not designed to apply:

(b) Outside the workplace;

available sources of such support.

1.3 Who should use this Handbook?