NZS 7901:2014 New Zealand Standard Electricity and gas industries Safety management systems for public safety Superseding NZS 7901:2008 NZS 7901:2014
COMMITTEE REPRESENTATION This standard was prepared under the supervision of the P 7901 Committee established by the Standards Council under the Standards Act 1988. The committee consisted of representatives of the following nominating organisations: Contact Energy Electricity Engineers Association of New Zealand Inc. Genesis Energy Institution of Professional Engineers New Zealand (IPENZ) KiwiRail Meridian Energy Ministry of Business, Innovation and Employment (WorkSafe New Zealand from December 2013) New Zealand Council of Elders New Zealand Institute of Safety Management Orion New Zealand Ltd Powerco Telarc SAI Ltd Transpower New Zealand Ltd Vector Ltd ACKNOWLEDGEMENT Standards New Zealand gratefully acknowledges the contribution of time and expertise from all those involved in developing this standard. Cover photographs: Te Waireka Road substation, courtesy The Lines Company Ltd Benmore hydro power station, courtesy Meridian Energy Ltd Nga Awa Purua geothermal power station, courtesy Mighty River Power Co. Ltd Belmont Gate gas station, courtesy Powerco Ltd. COPYRIGHT The copyright of this document is the property of the Standards Council. No part of this document may be reproduced by photocopying or by any other means without the prior written permission of the Chief Executive of Standards New Zealand, unless the circumstances are covered by Part 3 of the Copyright Act 1994. Standards New Zealand will vigorously defend the copyright in this Standard. Every person who breaches Standards New Zealand s copyright may be liable, under section 131(5) (a) of the Copyright Act 1994, to a fine not exceeding $10,000 for every infringing copy to which the offence relates, but not exceeding $150,000 for the same transaction, or to imprisonment for a term not exceeding 5 years. Those in breach under section 131(5) (b) of the Copyright Act 1994 may be liable to a fine not exceeding $150,000 or to imprisonment for a term not exceeding 5 years. If there has been a flagrant breach of copyright, Standards New Zealand may also seek additional damages from the infringing party, in addition to obtaining injunctive relief and an account of profits. 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.
New Zealand Standard Electricity and gas industries Safety management systems for public safety ISBN (Print) 978-1-77551-267-7 ISBN (PDF) 978-1-77551-268-4
NOTES AMENDMENTS No. Date of issue Description Entered by, and date
CONTENTS Committee representation... IFC Acknowledgement... IFC Copyright... IFC Referenced documents...v Related documents... vi Latest revisions... viii Review of standards... viii Foreword... ix Outcome statement...x Section 1 GENERAL...1 1.1 Purpose...1 1.2 Scope...2 1.3 Definitions...3 1.4 Abbreviations...8 1.5 Interpretation...9 2 SAFETY MANAGEMENT SYSTEM OUTLINE...10 2.1 Introduction...10 2.2 Objective...10 2.3 Structure...10 2.4 Responsibilities...10 2.5 Methodology... 11 2.6 Intent... 11 2.7 Treatment of significant risks...12 2.8 Development and implementation...12 2.9 Integration with other management systems...12 2.10 Legislative requirements for specific assets...12 2.11 Performance monitoring...12 3 ASSET DESCRIPTION...13 3.1 Requirement...13 3.2 Coverage...13 3.3 Demarcation points...13 3.4 Consistency...13 4 MANAGEMENT OF RISKS...14 4.1 Introduction...14 4.2 Risk context...15 4.3 Risk criteria...16 4.4 Risk assessment...16 iii
4.5 Risk treatment...18 4.6 Coverage...20 4.7 Review...20 4.8 Additional legislative requirements for specific assets...21 5 SAFETY AND OPERATING PROCESSES AND INFORMATION...22 5.1 General...22 5.2 Coverage and content...22 5.3 Continual improvement...22 5.4 Roles and responsiblities...22 5.5 Compliance requirements...23 5.6 Emergency preparedness...23 5.7 Competency...23 5.8 Change management...24 5.9 Communications...24 5.10 Provision of information...25 5.11 Incident management...25 6 PERFORMANCE MONITORING...26 6.1 General...26 6.2 Audit...26 6.3 Key performance indicators...27 6.4 Incident summary...28 6.5 Annual review...28 7 DOCUMENT AND DATA CONTROL...29 7.1 Control procedures...29 7.2 Document and data management...29 Appendix A Regulations, standards, and codes for the electricity and gas industries Safety management systems for public safety (Informative)...30 B Example of SMS content (Informative)...31 C SMS elements (Informative)...46 D Spectrum of intolerable and tolerable risk of serious harm (Informative)... 47 E F G Practicable costs of risk management (Informative)...48 Public safety awareness programmes (Informative)...49 Examples of key performance indicators (Informative)...51 Figure A1 C1 Legislative requirements for, and guidance on, safety management systems for public safety...30 Elements of a safety management system...46 D1 Illustration of the application of ALARP...47 iv
REFERENCED DOCUMENTS The following standards and other publications are either directly referenced in this document or else contain information that is relevant to the development and implementation of a safety management system to safeguard members of the public and their property. New Zealand standard NZS 5257.1:2004 Gas industry Audit protocol Australian standard AS 5577:2013 Electricity network safety management systems Joint Australian/New Zealand standards and handbooks HB 167:2006 AS/NZS 4581:1999 AS/NZS 4645.1:2008 Security risk management Management system integration Guidance to business, government and community organizations Gas distribution networks Network management AS/NZS 4801:2001 Occupational health and safety management systems Specification with guidance for use AS/NZS 4804:2001 Occupational health and safety management systems General guidelines on principles, systems and supporting techniques AS/NZS ISO 31000:2009 Risk management Principles and guidelines International standards ISO Guide 73:2009 ISO 19011:2011 Risk management Vocabulary Guidelines for auditing management systems v
Other publications Department of Labour (now WorkSafe New Zealand) A General Guide to the Health and Safety in Employment (Pressure Equipment, Cranes, and Passenger Ropeways) Regulations 1999, 2007 Electricity Engineers Association of New Zealand (EEA) Guide to Electrical Safety for Emergency Services Personnel, 2009 Ministry of Business, Innovation and Employment and the Institute of Directors in New Zealand Good governance practices guideline for managing health and safety risks, 2013 Ministry of Transport The social cost of road crashes and injuries 2013 update, 2013 NZECP (New Zealand Electrical Code of Practice) 34:2001 New Zealand Electrical Code of Practice for Electrical Safe Distances, 2001 NZECP 46:1993 New Zealand Electrical Code of Practice for High Voltage Live Line Work, 1993 New Zealand legislation Building Act 2004 Electricity Act 1992 Electricity (Hazards from Trees) Regulations 2003 Electricity (Safety) Regulations 2010 Gas Act 1992 Gas (Safety and Measurement) Regulations 2010 Hazardous Substances and New Organisms Act 1996 Health and Safety in Employment Act 1992 (under review) Health and Safety in Employment (Pressure Equipment, Cranes, and Passenger Ropeways) Regulations 1999 Resource Management Act 1991 vi
RELATED DOCUMENTS AS/NZS 5601.1:2013 AS/NZS 5601.2:2013 Gas installations Part 1: General installations Gas installations Part 2: LP Gas installations in caravans and boats for non-propulsive purposes Department of Labour Occupational Safety and Health Service (now WorkSafe New Zealand) Approved Code of Practice for Managing Hazards to Prevent Major Industrial Accidents, 1994 EEA Guide for Power System Earthing Practice, 2009 EEA Guide for High Voltage Single Wire Earth-Return Systems, 2011 EEA Guide for Connection of High Voltage Electrical Installations, 2012 EEA Safety Manual Electricity Industry (SM-EI) Parts 1 to 3, 2004 EEA and Gas Association of New Zealand (GANZ) SMS for Public Safety Handbook for ESI & GSI Companies, 2011 GANZ Gas Industry Disconnection and Reconnection Protocol (GIP 001), 2006 GANZ Gas Industry Event Notification Protocol (GIP 002), 2005 HB 158-2010 NZS 5258:2003 NZS 5259:2004 NZS 5263:2003 NZS 5442:2008 SA/SNZ HB 89:2013 Delivering assurance based on ISO 31000:2009 Risk management Principles and guidelines Gas distribution networks Gas measurement Gas detection and odorization Specification for reticulated natural gas Risk management Guidelines on risk assessment techniques SA/SNZ HB 436: 2013 Risk management guidelines Companion to AS/NZS ISO 31000:2009 Safe Work Australia How to determine what is reasonably practicable to meet a health and safety duty, 2013 Safe Work Australia Model Work Health and Safety Bill, 2011 Safe Work Australia Model Work Health and Safety Regulations, 2011 UK Health and Safety Executive Reducing risks, protecting people HSE s decision-making process, 2001 Websites New Zealand legislation www.legislation.govt.nz Safe Work Australia www.swa.gov.au UK Health and Safety Executive www.hse.gov.uk WorkSafe New Zealand www.worksafe.govt.nz vii
LATEST REVISIONS The users of this standard should ensure that their copies of the above-mentioned New Zealand standards and legislation are the latest revisions. Amendments to referenced New Zealand and Joint Australian/New Zealand standards can be found on www.standards.co.nz. See www.legislation.govt.nz for the latest amendments to legislation. REVIEW OF STANDARDS Suggestions for improvement of this standard will be welcomed. They should be sent to the Chief Executive, Standards New Zealand, Private Bag 2439, Wellington 6140. viii
FOREWORD The Electricity Act and the Gas Act each require electricity generators, distributors, and owners or operators of gas supply systems to implement and maintain, in accordance with regulations, safety management systems that require all practicable steps to be taken to prevent the electricity supply system or gas supply system from presenting a significant risk of: (a) (b) Serious harm to any member of the public; or Significant damage to property owned by a person other than the electricity generator or electricity distributor, or the person that owns or operates the gas supply system. This standard has been developed by the New Zealand electricity and gas supply industries and other stakeholders. The standard identifies the principles and provides guidance on the design, implementation, and operation of a safety management system intended to prevent a significant risk arising from the presence or operation of electricity and gas supply industry assets. The committee reviewing the 2008 standard confirmed the objectives of the original standard committee. However, in the light of experiences of industry enterprises in developing and implementing compliant safety management systems, and accredited certification bodies in auditing these, a number of requirements were identified for clarification, changed wording, or the provision of further information. The committee has taken the requirement of all practicable steps cited in the relevant sections of the two Acts and reinterpreted it to be so far as is reasonably practicable since this is the criterion proposed to be applied in the reform of workplace health and safety legislation in 2014. There is merit in applying the same criterion to public safety to ensure consistency in approaches. In addition, the review committee determined that the original hazard identification, hazard assessment and hazard control approach should be replaced and aligned instead with the risk management principles and guidelines in AS/NZS ISO 31000. The committee considered that the enterprises engaged in the gas and electricity supply industries in 2014 are much more aware of the principles and application of risk management, and are in a better position to appreciate the benefits of applying a risk-based approach to the ongoing operation and continual improvement of their public safety management systems. This will require each enterprise to consider the levels of risk that members of the public will generally accept as being reasonable in any given circumstances. This standard takes a risk management approach to safety-related risks. This approach requires all such risks associated with the presence or operation of the systems used for electricity generation, transmission, or distribution, or gas distribution to be systematically identified and assessed in order that all significant risks of serious harm to members of the public, or significant damage to property, are identified and treated to the extent that the residual risks are as low as reasonably practicable and tolerable. When identifying safety-related risks, the whole life cycle of each asset (see 1.3) should be considered. ix
The application of risk management principles and guidelines, as set out in AS/NZS ISO 31000, commences by considering the external and internal contexts in which risks will be managed, and the risk criteria to be applied. The next steps are: (a) (b) The assessment of risks that are present, and The treatment of those risks that are not tolerable. Identification of risks is carried out in the risk assessment phase. While the identification of hazards will be helpful in identifying the presence of safety-related risks, hazard identification per se is not essential in the risk management process. Persons involved in risk assessment should consider the risk posed by any hazard, even though the subsequent treatment of the risk may include applying suitable physical or administrative controls to the hazard. Further explanation is provided in section 4 of this standard. The safety management system is required to be documented and its performance monitored to demonstrate that the levels of safety achieved for members of the public and property are continually improved over time. Users of this Standard are reminded that it has no legal authority in its own right, but acquires legal standing when adopted by the government or other authority having jurisdiction. The intended relationship of this standard with the Electricity Act and the Gas Act is shown in diagrammatic form in Appendix A. OUTCOME STATEMENT This standard will assist, through risk assessment and treatment of significant risks, the prevention of serious harm to any member of the public or significant damage to property from electricity generation, transmission or distribution network assets, gas distribution assets, and the operation of these assets. x
Electricity and gas industries Safety management systems for public safety This is a free sample only. Purchase the full publication here: https://shop.standards.govt.nz//catalog/7901%3a2014%28nzs%29/view Or contact Standards New Zealand using one of the following methods. Freephone: 0800 782 632 (New Zealand) Phone: +64 3 943 4259 Email: enquiries@standards.govt.nz