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NIOSH Publication No. 2002-115:Surveillance and Prevention of Occupational Injuries in Alaska: |
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Contents
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Victims | Survivors | Total | |
---|---|---|---|
Wearing PFD | 17 |
34 |
51 |
Not Wearing PFD | 54 |
13 |
67 |
Total | 71 |
47 |
118 |
Photo 14: EPIRB, flares and immersion suits on board a commercial fishing vessel.
NIOSH analysis of USCG vessel casualty statistics for 1991 through 1999 revealed that the number of vessels lost per year has remained relatively constant (mean 34, median 36), as did number of workers on board (mean and median 106), whereas remarkable progress has been made in the case-survivor rate (number survivors ÷ number on board) in this type of incident. The case-survivor rate has increased from an average of 78% in 1991-1993, to 92% in 1994-1996, and then to an average of 94% from 1997-1999. (See Table 7.) (This information is not available for 1990). These data only represent fatalities due to the loss of a vessel. Therefore, man-overboard (MOB) events, crushing's, and fires are not represented.
While mortality in commercial fishing has indeed been reduced, the continuing pattern of losing 25 to 45 vessels every year and approximately 100 persons who must be rescued each year from cold Alaska waters remains problematic. Successful rescue is still dependent on the expertly trained personnel of the USCG Search and Rescue (SAR) operations, and such efforts can be hindered by distance and the harshness of seas and the weather. Furthermore, the workers involved in USCG SAR operations are themselves at considerable risk for injury or death during these rescue attempts.
Year | Number of Vessels Lost | Workers on Board* | Worker Fatalities** | Case Fatality Rate*** | Case Survivor Rate |
---|---|---|---|---|---|
1991 | 39 | 93 | 25 | 27% | 73% |
1992 | 44 | 113 | 26 | 23% | 77% |
1993 | 24 | 83 | 14 | 17% | 83% |
1994 | 36 | 131 | 4 | 3% | 97% |
1995 | 26 | 106 | 11 | 10% | 90% |
1996 | 39 | 114 | 13 | 11% | 89% |
1997 | 31 | 84 | 1 | 1% | 99% |
1998 | 37 | 124 | 9 | 7% | 93% |
1999 | 28 | 104 | 11 | 11% | 89% |
Surveillance findings for causes of fishing-related fatalities for the Alaska commercial fishing industry parallel those reported in previous surveillance data, incident investigations, and survey information collected for 1980-1992 by NIOSH,18,19 USCG,20NRC,21NTSB,22and the University of Alaska.23 Workers at greatest risk for fishing-related fatal injuries are those who fish for crab aboard unstable vessels. However, our more recent findings reveal consistent reduction of fatalities linked to vessel-related emergencies.24,25
The causative factors for Alaska commercial fishing-associated fatal and nonfatal injuries are complex. Gear type, fatigue, and environmental conditions also contribute to the severity, if not the frequency, of occupational incidents. (See Table 8.)
Host/Human | Agent/Vehicle | Environment | |
---|---|---|---|
Pre-Event/ Pre-Injury | Captain & crew Fatigue Stress Inadequate training/ exposure |
Unstable vessel Unstable work platform Complex machinery and operations |
High winds Large waves, icing Short daylight Limited fishing seasons Vessels far apart |
Event/Injury | Captain & crew Reaction to emergency PFD not available/ not working |
Leaning or capsized vessel Delayed abandonment Emergency circumstance not understood Man overboard (MOB) |
High winds Large waves Darkness Poor radio communications Cold water |
Post-Event | Poor use of available emergency equipment Hypothermia Drowning Lost at sea |
Vessel sinking, Poor crew response to MOB |
High winds Large waves Cold water |
The impressive progress made during the 1990s in reducing mortality in fishing-related incidents in Alaska has occurred largely post-event, primarily by keeping fisherman who have evacuated capsized or sinking vessels afloat and warm(using immersion suits and life rafts), and by being able to locate them readily, via electronic position indicating radio beacons (EPIRBs). All of these regulations required by the CHVSA were implemented during 1990 through 1995. (See Table 9.)
Host/Human | Agent/Vehicle | Environment | |
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Pre-event/ Pre-injury | Drills | Navigation publications Compasses Anchors |
|
Event/Injury | Immersion suits PFDs |
Fire extinguishers/ systems Firemen’s outfits/ SCBAs High water alarms Bilge pumps/alarms |
|
Post-event | Immersion suits PFDs | Distress signals Life rafts EPIRBs |
First-aid kits CPR & first aid |
Photo 15: Fishing in Southeast Alaska
The CFIVSA emphasized the use and availability of safety equipment during and after emergencies at sea. The findings presented here show considerable reductions in fatalities in some sectors of this industry, but show persistent problems in other areas and no change in the most severe nonfatal injuries. NIOSH has recommended augmenting the current standard approach to minimizing the deaths associated with commercial fishing by attempting to prevent such emergency incidents in the first place, as well as preparing workers in advance on how to react to emergencies if they should occur.24,25One of Alaska’s innovative marine safety training programs, conducted by the Alaska Marine Safety Education Association (AMSEA), has effectively prevented fishing-related deaths.26
The critical etiologic factors that must be addressed for definitive, primary prevention efforts in this industry are vessel stability and hull integrity to keep vessels afloat, licensing and training of operators and crew to ensure a minimum level of competency, coordination of management regimes and safety considerations, avoidance of the harshest sea and weather conditions, and avoidance of falls overboard. Special attention should also be given to worker safety around deck machinery, an area that has not been addressed with current regulations. Efforts are underway to concentrate on the relationship between the vessel, fishing equipment and the worker. (See Table 10.)
Host/Human | Agent/Vehicle | Environment | |
---|---|---|---|
Pre-event/ Pre-injury | Licensing of skipper Increased training on vessel stability Increased drills |
Reassessment of stability after refitting Retrofitting of sponsors Separating lines from workers |
Evaluate impact of management regimes for fisheries No-sail guidelines due to weather Development/refinement of icing nomograms |
Event/Injury | Wearing personal flotation devices (PFDs) Man overboard (MOB) alarms Personal emergency position indicating radio beacons (EPIRBs) |
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Post-event |
Alaska efforts have started to benefit fishermen in other parts of the U.S.: in 1999, the USCG established a “Fishing Vessel Casualty Task Force” to perform a fast track examination of commercial fishing industry operational and safety issues that may have contributed to a recent increase in marine casualties on the east coast of the U.S. A report of their findings was published in April 1999 and included a list of recommendations for the fishing fleet.27 The task force relied heavily on three earlier government studies including a 1987 report from the NTSB,22 a 1991 NRC proposal for a national fishing safety program,21 and a 1997 NIOSH study 24 of Alaska fishing-related deaths.
Several countries have reported similar safety problems with their commercial fishing fleets. Iceland experienced a commercial fishing fatality rate of 89.4/100,000/year from 1966 through 1986.28 Safety programs implemented by different countries vary, focusing on vessel quality, operator licensure, crew standards, and safety training.21 In the United Kingdom, comprehensive regulations implemented in 1975 include inspections of fishing vessels, personnel training, staffing and watch-keeping requirements.21,29 However, more recent research from the United Kingdom shows that vessel casualties are still a major problem. Fatigue is a common theme in UK commercial fishing incidents, so another recommendation calls for a reduction in the numbers of hours worked by the crew.30
The Canadian commercial fishing industry operates in cold waters and has fisheries similar to the northern U.S. fishing industry. Canada experienced high mortality rates, 46/100,000/year for the period 1975 through 1983.31 In the mid-1980s, Canada examined the fatalities in their fishing industry and developed many safety standards that have been implemented, including (a) requiring safety training to obtain a commercial fishing license, (b) increasing public awareness programs targeting high-risk fisheries, (c) inspecting fishing vessels under 15 gross tons, and (d) requiring the annual submission of self-inspection checklists as a prerequisite for vessel fishing licensure. Although rates of nonfatal injuries associated with vessel emergencies and workplace hazards continue to occur at about the same rate as previously occurred, fatalities have generally been reduced.21
The USCG has also recently developed a number of innovative programs, including damage control training, vessel risk indexing, and safety checks prior to historically high-risk fishery season openings. Effective surveillance and interventions for commercial fishing-related mortality in Alaska, historically the worst-case setting in the United States, should provide a useful paradigm and productive venue for prevention of similar deaths throughout the world. Using surveillance data as the basis for action, collaborative efforts have been used to continue the progress made in reducing the fatality rate in Alaska’s commercial fishing industry since the implementation of the CFIVSA. Although other factors, such as changing fisheries management and climate change, may have contributed to these successes, the strong temporal association between the implementation of the regulations and the fatalities in Alaska’s commercial fishing industry are evidence of the effectiveness of a collaborative approach.
The substantial progress made to date in Alaska’s most hazardous industry, through the application of the public health prevention model, as well as the incorporation of new technologies and comprehensive training, should encourage others to try similar approaches elsewhere, and in response to other problems. Building further on the progress already made in preventing deaths in the historically dangerous occupation of fishing could lead to much safer working conditions for commercial fishermen.
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