DISCLAIMER Sponsorship of the FISH II Workshop and these Proceedings by the National Institute for Occupational Safety and Health (NIOSH) does not constitute endorsement of the views expressed or recommendations for use of any commercial product, commodity, or service mentioned. The materials, opinions, and conclusions expressed in the papers are those of the authors and not necessarily those of NIOSH. Recommendations are not to be considered as final statements of NIOSH policy or of any agency or individual who was involved. They are intended to be used in advancing the knowledge needed for improving worker safety and health. This document is in the Public Domain and may be freely copied or reprinted. Copies of this and other NIOSH documents are available from: Publication Dissemination, EID National Institute for Occupational Safety and Health 4676 Columbia Parkway Cincinnati, Ohio 45226 FAX (513) 533-8573 Telephone Number: 1-800-35-NIOSH (1-800-356-4674) E-mail: [email protected] To receive other information about other occupational safety and health problems, call: 1-800-35-NIOSH or visit the NIOSH Web site at www.cdc.gov/niosh DHHS (NIOSH) PUBLICATION NO. 2000-104 ii Second National Fishing Industry Safety and Health (FISH II) Workshop Convened by the National Institute for Occupational Safety and Health November 21-22, 1997, Seattle, Washington FOREWORD The National Institute for Occupational Safety and Health (NIOSH) was proud to be a co-sponsor of the Second National Fishing Industry Safety and Health (FISH II) Workshop. This Workshop provided an excellent opportunity for professionals from the occupational safety and health community and the fishing and transportation industries to come together and discuss issues, problems, and solutions in the commercial fishing industry. Using the National Traumatic Occupational Fatalities (NTOF) surveillance system, NIOSH has found that occupational fatality rates in Alaska are dramatically high, especially in the agriculture, forestry, and fishing industries. Focusing on the commercial fishing industry, NIOSH surveillance data indicated that over 145 commercial fishing fatalities occurred in Alaska from 1991-1996. The occupational fatality rate for commercial fishing in Alaska is 20 times that of the overall U.S. occupational fatality rate. In the last five-year period, there has been a one-third reduction in the number of fishing fatalities. Despite improvement, there is still much that can be done. The goal of the FISH II Workshop was to build on the accomplishments of the FISH I Workshop, with an emphasis on increasing awareness, supporting coalitions, sharing information and experiences, and encouraging action to prevent injury in the commercial fishing industry. These Proceedings capture information presented at the Workshop. We hope that they will be a useful tool for other researchers, public health practitioners, and policy-makers. I would like to acknowledge and congratulate all of those who participated in the Workshop, and recognize those without whom this Workshop would not have been possible: Alaska Marine Safety Education Association, National Transportation Safety Board, Northwest Center for Occupational Health and Safety, North Pacific Fishing Vessels Owners’ Association, Occupational Safety and Health Administration, United States Coast Guard, and the NIOSH Alaska Field Station. Linda Rosenstock, M.D., M.P.H. Director, National Institute for Occupational Safety and Health Centers for Disease Control and Prevention iii Second National Fishing Industry Safety and Health (FISH II) Workshop Convened by the National Institute for Occupational Safety and Health November 21-22, 1997, Seattle, Washington PREFACE Since the first National Fishing Industry Safety and Health Workshop was held in Anchorage in 1992, much has changed in this industry. By 1997 fishing in Alaska was resulting in much fewer deaths than at the beginning of the 1990s (indeed, a total of 28 commercial fishermen died annually in Alaska from 1996 and through 1997, versus the 71 who died in 1991 through 1992). The Commercial Fishing Industry Vessel Safety Act of 1988, by requiring many improvements in safety equipment on vessels and training of fishermen, has likely saved many lives since it began being implemented in 1991. However, the news is not all good–in 1996 through1997, 70 vessels still capsized or were lost in Alaska’s waters (versus 73 in 1991 through 1992), and 198 fishermen ended up in Alaska’s icy seas (versus 206 five years earlier). So, we are salvaging fishermen quite effectively once disaster occurs, but not preventing these events as we should. During the last 5 years, we have also been able to much better enumerate and understand the many injuries which fishermen suffer in the North Pacific, and have gathered much data on those injuries resulting in hospitalization. The 1997 Workshop, in its own way, posed a more difficult challenge than in 1992, as during the earlier years, the problems were so egregious that common sense often sufficed for understanding these events, and what must be done. There was also a tremendous sense of urgency. By 1997, the picture is more complex, with some real successes overlying other persistent failures, and satisfied complacency potentially supplanting the old urgency. Our goal in meeting in Seattle, Washington, in November 1997 was to describe current circumstances and plan next steps to ensure that North Pacific fishermen have the kind of relatively safe workplaces that all Americans deserve. This compilation of talks and recommendations represents real progress toward that goal. George A. Conway, M.D., M.P.H. Chief, Alaska Field Station Division of Safety Research National Institute for Occupational Safety and Health iv Second National Fishing Industry Safety and Health (FISH II) Workshop Convened by the National Institute for Occupational Safety and Health November 21-22, 1997, Seattle, Washington ACKNOWLEDGMENTS Convening the Second National Fishing Industry Safety and Health (FISH II) Workshop was a team effort as was preparing these Proceedings. In addition to the planning committee, the presenters, and the session moderator, we wish to thank the following staff and editorial advisors for their diligent work at the FISH II Workshop and for their help in the preparation of this document. Foremost in our appreciation, we thank Sharon Smith and Linda Ashley who worked with dedication and superb attention to detail in all phases of the publication of these Proceedings. They are responsible for the completeness of this document. A special thanks is extended to Jennifer Lincoln for compiling and clarifying the FISH II safety recommendations. A special thanks is also extended to Joyce Spiker and Herb Linn for preparing the camera ready version. We are also very grateful to Rick Kelly’s expert support with computer hardware and software. v Second National Fishing Industry Safety and Health (FISH II) Workshop Convened by the National Institute for Occupational Safety and Health November 21-22, 1997, Seattle, Washington vi Second National Fishing Industry Safety and Health (FISH II) Workshop Convened by the National Institute for Occupational Safety and Health November 21-22, 1997, Seattle, Washington TABLE OF CONTENTS FOREWORD................................................................... iii PREFACE ..................................................................... iv ACKNOWLEDGMENTS ..........................................................v EXECUTIVE SUMMARY.........................................................1 (Michael Klatt) CHAPTER I WORKSHOP OPENING INTRODUCTION ................................................................9 (Dr. Linda Rosenstock) KEYNOTE: THE LONG HAUL ....................................................13 (Peggy Barry) OPENING REMARKS...........................................................17 (John Hammerschmidt) WORKSHOP CHARGE..........................................................23 (Dr. George Conway) CHAPTER II DEFINING THE PROBLEM AND IDENTIFYING THE POPULATION AT RISK EPIDEMIOLOGY OF VESSEL CASUALTIES AND COMMERCIAL FISHING FATALITIES IN ALASKA .................................25 (Jennifer Lincoln) NON-FATAL INJURIES IN THE ALASKAN COMMERCIAL FISHING INDUSTRY ........30 (Bradley Husberg) THE FINANCIAL AND HUMAN COSTS OF COMMERCIAL FISHING ..................40 (Jim Herbert) vii Second National Fishing Industry Safety and Health (FISH II) Workshop Convened by the National Institute for Occupational Safety and Health November 21-22, 1997, Seattle, Washington CHAPTER III COMMERCIAL FISHING SAFETY HISTORY OF COMMERCIAL FISHING LEGISLATION...............................52 (Ken Lawrenson) ALASKAN COMMERCIAL FISHING VESSEL CASUALTIES: AN OVERVIEW................................................................57 (Alan Blume) USCG FISHING VESSEL SAFETY DOCKSIDE EXAM PROGRAM AND ALASKAN FISHING VESSEL CASUALTY RATES ..............................74 (Charlie Medlicott) OSHA INTERVENTION IN THE ALASKAN FISHING INDUSTRY ......................82 (Barry Noll) SAFETY CULTURE FROM MANAGEMENT’S PERSPECTIVE ........................88 (Leauri Lopes) EFFECT OF RESOURCE MANAGEMENT DECISIONS ON FISHING VESSEL SAFETY ......................................................91 (Ed Thompson) CHAPTER IV INTERVENTION STRATEGIES AND SAFETY PROMOTION USING EPIDEMIOLOGY AND SURVEILLANCE DATA TO DEVELOP PREVENTION STRATEGIES ........................................ 94 (Dr. George Conway) WHY SAFETY IS “GOOD BUSINESS” .............................................98