Mining Health, Safety and Prevention Review

Transcription

1 Health & Safety at Work Prevention Starts Here Mining Health, Safety and Prevention Review Training, Skills and Labour Supply Working Group WSN Mining Conference April 16, 2015

2 Overview Working Group Mandate, Membership and Work Plan Findings and Conclusions Recommendations 2

3 Purpose The purpose of the initiative was to examine the training, skills and labour supply issues in the Ontario Mining Sector can be expressed in terms of the following objectives: review research and solicit advice from subject matter experts to identify challenges and solutions with regard to training, skills and labour supply issues; part of this analysis will include stakeholder views on these issues; recommend strategies for addressing training, skills and labour supply challenges. 3

4 Deliverable The key deliverable from this initiative was a report that addressed the best practices and challenges discovered with regard to training, skills and labour supply issues including recommendations for addressing these challenges 4

5 Participants Participants Robert Merwin - Facilitator John LeClair, - Member James Niemi - Member Gerry Champagne - Support Sylvia Barnard - Support Glenn Staskus - Support Michelle Foster-Chandler - Support Affiliation Executive Advisor, Ministry of Northern Development and Mines Goldcorp, Toronto LU 6500 H&S Representative, Labour Co- Chair of the Mining Tripartite Committee Consultant/Trainer, WSN Training Consultant Provincial Coordinator (Acting) Mining Health and Safety Program, MOL Policy Advisor, Ministry of Training, Colleges and Universities 5

6 Background In order to develop a common understanding of the challenges and opportunities, it was important to better understand the current legislative framework and mandated training required in Ontario. The Occupational Health and Safety Act (OHSA) requires employers to provide workers with information and instruction to protect their health and safety. This includes providing supervisors with the information and instruction needed to fulfill their responsibilities under the Act. Employers engaged in mining operations must train their employees in the Common Core and Specialty Modules required by the OHSA, Regulation 854, Mines and Mining Plants. In addition other training programs are provided by employers as needed. 6

7 Background As a backdrop to the overall importance of training, the mining sector will also face potential skills and labour shortage issues in the near future. Employee losses, including retirements combined with new mine developments and expansions will create future hiring requirements for the industry, which in turn will impact training needs and capacity in the sector. Regulation 854 (Mines and Mining Plants) under the Occupational Health and Safety Act sets out specific occupational health and safety requirements for owners, employers, supervisors and employees at mines and mining plants in Ontario. The regulation addresses health and safety issues in the mining sector, including topics such as training, fire protection, explosives, mine-hoisting plants, and electrical and mechanical equipment. 7

8 Background The Occupational Health and Safety Act and other regulations also set out other requirements that apply generally to all workplaces, including mines and mining plants. These include regulatory requirements regarding, for example, exposure to chemical and biological agents, confined spaces and Workplace Hazardous Materials Information. The Ministry of Training, Colleges, and Universities (MTCU) administers the mining modular training programs. Each consists of a Common Core and may include specialty modules. 8

9 Findings The results of an Underground Mining Risk Assessment workshop (July 2014) facilitated by the with labour and industry representation and subject matter experts, validated many of the risks and events identified by the Training and Skills Working Group. A total of 17 training-related risks were identified and prioritized as part of a comprehensive list of over 260 risks. The Working Group reviewed the relevant recommendations from coroner jury reports or commissions/inquiries (Ham, Burkett and Stevenson). Based on this review, key recommendations have been implemented as appropriate or have been superseded by more recent initiatives. 9

10 Public Consultations Almost unanimous support for the Common Core concept and approach for the mining sector. Concerns focused mainly on the delivery of modules rather than the content. Some expressed need to develop better standards for trainers. Concerns about the training of new employees, including those from demographics not traditionally part of the mining sector. The importance of methods to evaluate the effective transfer of knowledge, with the key focus on competency. Despite overall support for the Common Core, the need to review some modules, especially those related to supervisors. 10

11 Public Consultations If standards for trainers and evaluation tools are developed the importance of considering the differing lengths of time spent to complete the modules. Concerns that, once an employee completes the necessary modules, no further training is required and the need for mandatory refresher training. Some support for making mining a registered trade and developing the appropriate apprentice programs to ensure knowledge is transferred from the more experienced miner to the apprentice. However, also strong opposition to this idea from those who feel the current Common Core modular training model serves the sector well. 11

12 Jurisdictional Scans of Training for Mine Managers and Supervisors The composition of the mining sector across Canada, North America and internationally varies extensively, depending on the type of material mined and the methods that are used in the production of the material. Requirements for training also vary substantially as a general matter between jurisdictions with active mines. When compared to Ontario, another jurisdiction s training requirements may be very different due to factors including the type of mining undertaken and whether it is a combination of surface, underground mines or coal mining operations, the latter of which are not found in Ontario. 12

13 Jurisdictional Scans of Training for Mine Managers and Supervisors Training requirements in most jurisdictions generally describe the minimum training required for some or all of the following job categories. (a) mine worker; (b) manager; (c) supervisor; (d) engineers, geologists; (e) trades; (f) mine rescue worker; (g) general support workers; 13

14 Jurisdictional Scans of Training for Mine Managers and Supervisors Following a review of a jurisdictional scan of training requirements set out in the occupational health and safety (OHS) legislation, it was noted that other jurisdictions have unique or distinct training requirements for both underground mine managers and supervisors that are not found in Ontario. These unique requirements are found primarily in legislation and regulations in other Canadian provinces and territories, and to a lesser extent in the United Sates and other international jurisdictions 14

15 Mine Managers Some jurisdictions outside of Ontario have specific requirements that apply to a mine manager. Some of the unique training requirements for mine managers found in other jurisdictions include: Requirement to have specific post-secondary degrees in a mine engineering discipline or valid documentation from an equivalent certifying authority; Requirement to have relevant experience in underground mining for a specified period of time (up to five years) and specific work experience such as one year experience working at a working face; Having firsthand experience as a fully accredited supervisor; Completing training as soon as reasonably practicable after being designated as a manager; 15

16 Mine Managers In some instances, the training requirements as a general matter for second line supervision (mine captains) are the same or similar to those of a manager. In some cases, various combinations of experience, education or training that could be demonstrated were seen to be equivalent and therefore acceptable. In jurisdictions that have specific requirements for mine managers, most require a mine manager to demonstrate knowledge of the Act, the regulations and underground mine rescue operations of the mine 16

17 Mine Supervisors Some of the unique training requirements for supervisors found in other jurisdictions include: Requirements to have minimum work experience in a mine for a specific period of time (ranging from 1 to 5 years of practical experience), in addition to holding valid certificates/credentials as a supervisor. In some cases, employers and contractors are required to ensure that a supervisor holds a diploma/certificate from a technical institution confirming completion a course of study in a mining related discipline or hold a degree in engineering from a college or university acceptable to the Director. 17

18 Mine Supervisors In some jurisdictions, supervisors who could demonstrate various combinations of experience, education or training would be seen to be equivalent to required training and therefore acceptable. Requirements for a minimum number of hours to be spent in the training of another supervisor; Requirements that supervisors also complete any applicable training that a worker was would be required to complete. Requirements to complete specific courses of study, including the role of a supervisor in health and safety management systems and ground control. As a general matter, all jurisdictions required supervisors be able to demonstrate knowledge of their respective OHS Act and the regulations. Some of the jurisdictions also require supervisors have knowledge of underground mine rescue operations of the mine. Engineers working underground in Nova Scotia must complete all the required elements of training for required by mine supervisors. 18

19 Labour Supply and Workforce Challenges The growth in the industry is occurring at a time when the workforce is aging. By 2018, approximately 50% of Ontario miners will exit the industry more than half of these through retirement1. Employee losses of this scale will create incremental hiring requirements and training needs. Historically, Ontario s mining industry has accounted for 14,900 new entrants into the workforce over a 10-year period or 3 per cent of people entering the workforce. The working group is of the opinion that there will be continued growth in the industry with new mine development and that pending retirements will generate a manageable number of vacancies for recruitment in the short to medium-term (5 years) of approximately 1,500 miners annually. Longer-term, the sector will be challenged as it competes with other sectors for a limited pool of skilled trades. 19

20 Mining as a Trade Some support for making mining a registered trade and developing the appropriate apprentice programs to ensure knowledge is transferred from the more experienced miner to the apprentice. However, also strong opposition to this idea from those who feel the current Common Core modular training model serves the sector well. The Working Group examined best practices in other jurisdictions, as well as other Canadian approaches to certification (MiHR Canadian Mining Certification Program). We have determined that while this concept presents pros and cons (having it as a trade could provide barriers to entry), it should not be considered as a priority. 20

21 Recommendations 4.1 Enhance supervisor and management training by: Requiring the Mining Tripartite Committee, which supports the development of Common Core training, to present to the Ministries of Labour and Training, Colleges and Universities options and recommendations to enhance supervisor and management health and safety training Requesting the Mining Tripartite Committee to review the pre-requisites for Supervisor Common Core training and determining the best format for this training (e.g. classroom learning, hands-on experience). 21

22 Recommendations 4.2 The to engage in discussions with the Ministry of Training, Colleges and Universities about the quality and consistency of Common Core training delivery in the underground mining sector, evaluate the current state of that training, and identify circumstances where refresher training may be appropriate. 22