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With the White Island volcanic eruption serving as a sombre reminder of the catastrophic consequences of safety oversights by tourism operators, Bronwyn Smart and James Ritchie of The Mindful Risk Group believe there are lessons to be learn from the tragedy to avoid similar incidents occurring.

In an article in Australasian Leisure Management issue 162, the pair, Directors of risk management consultancy The Mindful Risk Group, delve into the White Island volcanic eruption of December 2019, which they describe “as a poignant marker in New Zealand's history, marking one of its most tragic episodes.

“Amid the dramatic beauty of this volcanic island, a cataclysmic event unfolded, claiming lives and leaving many injured.”

The eruption resulted in the loss of 22 lives, with 25 others sustaining serious injuries. Subsequently, Worksafe NZ, the New Zealand safety regulator, embarked on an extensive investigation, leading to charges against 13 parties, including both individuals and entities. Immediately after the eruption, Phil Parkes, the then Chief Executive of Worksafe NZ, advised “this was an unexpected event, but that does not mean it was unforeseeable”.

Anatomy of the Failures
1. There was increased activity in the lead up to the eruption, and the tourists were told that the island was now rated ‘Level 2’, but with no explanation of what ‘Level 2’ meant.

2. The tourists were not provided with detailed safety briefings prior to the activity and some advised that they only received safety briefings once they were already on the island. This would indicate they were not in a position to make informed decisions prior to committing to the activity.

3. The tourists advised that they knew there were risks but they did not know or were not informed fully on what those risks were. They put their faith in the tour operators for their safety.

4. There were no instructions provided on what to do or how to respond in the event of an eruption.

5. Some of the charges laid related to the failure to conduct risk assessments and implement risk controls.

6. Some other charges were for failure to adequately inform tourists of the hazards and risks associated with visiting the island.

7. Tourists were told to wear enclosed shoes, hats and sunglasses. When they arrived on the island they were given a hard hat which they were told to wear at all times and a respirator which they were told to use if they felt they needed to. This proved to be insufficient PPE to guard against injury from an eruption.

8. In 2016, a shipping container had been placed on the island to act as shelter in case of an eruption. This was an ineffective risk control as there was an issue with its location - that it would take tourists too long to reach it - and its suitability to provide protection and resist the impact of projectiles and gases.

9. Tourists reported the only emergency response procedure was being told to ‘run’ by one of the tour guides.

10. There was insufficient first aid skill and equipment to support and treat survivors while waiting for medical attention. The first aid kits did not contain useful supplies to treat burns. The tourists who were assisting survivors tipped out the contents and used the kits to fill with water and pour over survivors burns.

11. There was insufficient radio installation for communications on the island. There was limited cell phone coverage and no fixed radio system.

Absence of Effective Risk Assessments
The need to complete risk assessments is detailed in work health and safety legislation and applies to all organisations regardless of industry, size and location. The issue of completion of risk assessments, or lack thereof, was a common thread throughout the prosecution and trial process.

Whakaari Management Limited (WML), the owners of the island, did not engage an expert to undertake a risk assessment of the business of permitting tours to occur on the volcano. WML approached GNS Science to conduct a formal risk assessment, but this had a cost of completion, which WML did not choose to pay.

Some of the tour operators had health and safety documentation but this was deemed to be inadequate.

Much of the prosecution was based on the fact that no risk assessments were completed by tour operator or others in a formal and systematic manner. In addition, the increased activity in the lead up to the event, did not trigger the completion of risk assessments.

The Trial and Prosecution
The ensuing 11-week trial, unprecedented in its scale, marked a pivotal moment in New Zealand's legal landscape. Among the accused were three individuals charged as Directors for failing in their due diligence responsibilities, and 10n entities held accountable for lapses in workplace health and safety standards.

Notably, New Zealand Government agencies such as GNS Science and the National Emergency Management Agency were also implicated, underscoring the gravity of the incident.

The Verdict and Implications
While some entities pleaded guilty or were found guilty, others saw their charges dismissed. Nevertheless, the presiding judge imposed significant reparations totalling $10.21 million, accompanied by fines and penalties. These legal repercussions underscored the severity of the lapses and emphasised the imperative for stringent safety measures in such environments.

During sentencing, Judge Thomas stated “properly assessing risk to tourists and employees caused by an eruption was blatantly fundamental … that failure exposed others to the risk of serious injury and death”.

The Lessons Learned
So what can other operators learn from this tragedy to avoid similar incidents occurring?

Here is our list of five things to focus on to prevent an incident like this.

1. Rigorous Risk Assessments: Comprehensive risk assessments are imperative for identifying and mitigating hazards associated with activities. Organisations must undertake these assessments systematically and adapt them dynamically to evolving circumstances.

2. External Expertise: Engaging external experts can provide invaluable insights into managing health and safety risks effectively. Investing in training and seeking expert guidance can enhance preparedness and response capabilities.

3. Emergency Preparedness: Planning for worst-case scenarios is paramount. Organisations must formulate robust emergency response plans tailored to specific threats, ensuring adequate provisions for medical care and evacuation procedures.

4. Legal Obligations: Understanding and fulfilling legal obligations concerning health and safety is non-negotiable. Ignorance is not a defence; organisations must proactively adhere to regulatory requirements to safeguard lives and well-being.

5. Investment in Safety: Prioritising health and safety initiatives is not just a moral imperative but also a sound investment. The cost of preventive measures pales in comparison to the human toll and economic ramifications of a disaster. This includes equipping frontline teams with comprehensive training on emergency protocols, supported by documented procedures to guide employees, visitors, and customers on safety within the workplace.

Conclusion
Smart and Ritchie conclude by describing the volcanic eruption “as a sombre reminder of the catastrophic consequences of safety oversights.

“As we reflect on this tragedy, it is incumbent upon us to internalise the lessons learned, fortify our defences, and cultivate a culture of safety that reverberates through every facet of society.

“Failure to heed these lessons would be a disservice to those who perished and those who continue to endure the aftermath of this preventable catastrophe.”

Bronwyn Smart FGIA CAHRI and James Ritchie FGIA are Directors of The Mindful Risk Group.

Click here to read the full article in Australasian Leisure Management issue 162.

Click here to visit The Mindful Risk Group website.

Images: White Island from the air (top, credit: GeoNet) and a woman photographs White Island just moments after it erupted on Monday 9th December 2019 (below, credit: Twitter/Michael Schade).

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