Mine Health and Safety Act, 1996 (Act No. 29 of 1996) Regulations Guideline for a Mandatory Code of Practice Prevention of Fires at Mines Part C : Format and Content of the Mandatory COP 8. Aspects to be addressed in the COP

 

In order to manage the risks associated with fires at a mine, the COP should set out a structured Fire Risk Management Program covering at least the steps and measures envisaged in this guideline. Figure 1 below shows diagrammatcially the Fire Risk Management Program covered in this guideline.

 

 

 

The COP should set out as the first element of a Fire Risk Management Program the requirement to identify fire hazards and then fire risks. The COP should require these to be continuous activities covering the following:

 

 

The COP should identify each possible fire hazard and classify each as either a fuel source or an ignition source (under certain circumstances, timber, coal and other organic materials may be both). The location of all possible ignition sources, at fixed sites at a mine or on mobile or semi-mobile equipment operating at a mine should be established.

 

Fires will occur if these two sources are present simultaneously in time and space. Preventative measures may be put in place to prevent such interactions and, under certain conditions, suitable physical barriers may be introduced to prevent the two sources from interacting. These are classified as protective measures against fires. Other actions and procedures, such as emergency evacuation procedures and the use of refuge bays, for example, are seen as measures needed to mitigate the impact following from the ignition of combustible material to protect workers. This COP shall concentrate predominantly on preventative measures and on some protective measures aimed particularly at separating effectively the two sources.

 

Annexure 1 Generic notes on fires provides more information on the stages of fire, covering the nature and development thereof.

 

 

The COP should classify the identified fuel sources in terms of the fire classes defined by the combustion process associated with them:

These are solid materials, usually of an organic nature, in which combustion normally results in the formation of glowing embers. These include combustibles such as wood, paper, fabric, plastics, and most kinds of solid waste materials.

These are non-solid fuels consisting of flammable or combustible liquids or gases such as petrol or propane gas.

Electrical fires involve potentially energised electrical equipment. This sort of fire may be caused by short- circuiting or overloaded electrical networks.

Combustible metals mostly encountered are magnesium, potassium, titanium, and zirconium. With the exception of the metals that burn in contact with air or water (for example potassium and sodium), combustible metals on their own do not represent unusual fire risks because they have the ability to conduct heat away from hot spots efficiently. However, when combustion is induced, the fire is self-sustaining: rapid combustion (oxidation) of magnesium induced by an external source may result in a fiercely exothermic process.

These include unsaturated cooking oils in well-insulated cooking appliances located in commercial kitchens. Though such fires are technically a subclass of the flammable liquid/gas category, the special characteristics of these types of fires, namely the lower flash point, are considered important enough to re classify these separately. Water mist can be used to extinguish such fires.

 

 

The COP should identify potential sources of ignition at a mine including but not limited to the following energy sources:

The presence of heat energy is often characterised by high temperature surfaces (e.g. exhaust systems of internal combustion engines, pumps, turbochargers, electric motors, gearboxes, heat exchangers, bearings, rubbing surfaces such as brakes, cigarette butts, naked flames from use of welding equipment and matches or cigarette lighters).

Switch gear, motors, retarders, transformers, lights and cables; short-circuit arcs, earth-faults, static electricity discharge, induction heating, thyrist or drives.

Friction (conveyor belts drives, winch ropes), mechanical impact (coal picks) or grinding.

Self-heating, auto-ignition, exothermic reactions, of coal and induced spontaneous combustion of coal and induced pyrolysis of vehicle tyres (lightning).

 

 

The COP should set out the Fire hazard identification process that requires a physical inspection of all working places, of travelling ways, hoisting and conveying infrastructures and of equipment and machinery used at a mine to identify and list all recognisable fuel and ignition sources. In addition, the fire hazard identification process shall include a review of processes employed at a mine to assess the probability of a fire being caused as the result of operational malfunctions or of process design failures.

 

The outcomes of the fire hazard identification process should be recorded in a Fire hazard register that identifies the hazard together with its classification (fuel source, ignition source or both) and location of the hazard at the mine. The latter should distinguish whether the fire hazard is fixed or mobile, as might be the case for vehicles. The location of fixed hazards should be deemed to be particularly hazardous where these are located in or in close proximity to intake airways, at sites containing other fire hazards (e.g. transformer station adjacent to fuel storage areas) or sites that might be adversely affected directly or indirectly by a fire (e.g. major oil-filled transformers adjacent to sub-vertical shafts or sub-declines or other fresh air intakes). The latter is of particular importance where mobile equipment is operated.

 

A series of different fire hazard identification processes may be undertaken at different stages in the life of any mining project. These should be appropriate in terms of and aligned with the maturity of the operation and of changes that take place from time to time due to process or system design modifications, introduction of new technologies and/or equipment and as a result of changes in accepted practices.

 

The COP should set out baseline and issue based procedures that are summarised in the fire hazard register and to include the following information:

 

These surveys should be completed as soon as any type of mining operation is undertaken (e.g. shaft sinking, primary development, plant construction, production ramp-up, etc.) and whenever a major change or addition to the operation or process is undertaken (e.g. sinking of another shaft or subvertical structure, extension of the mineral treatment plant, etc.)

 

Additionally, a review of the baseline risk survey should be conducted with the occurrence of changes in conditions and/or processes or resulting from an incident. The information from the risk survey can then be (used as a basis for the assessment and control of fire risk (refer to section 8.1.2: Assessment of fire risks).

 

 

The COP should set out measures ensuring that in the event of any changes in the equipment operated, systems or processes employed as recorded in section i) above, additional surveys should be performed to supplement the baseline fire hazard survey. In the absence of these changes, the baseline fire hazard surveys should be reviewed at intervals not exceeding 12 months. These reviews could include, but are not limited to, items identified during:

 

The COP should include a record of any instances where operational standards and procedures have been amended following such reviews.

 

Refer to Annexure 2: Examples of fire hazards at mines.

 

 

 

The COP should ensure that all identified fire hazards are analysed to assess their contribution to the overall fire risk. In the assessment of fire risks, the following should be included:

 

Where appropriate, similar fire hazards or classes of fire hazards may be analysed in logical groupings as might be determined by the mine's infrastructure, process or design.

 

 

The COP should outline measures to ensure that the selected risk assessment tools should be applicable for the intended function and should provide effective indication of:

 

The assessment of the fire risks should take into consideration impacts and consequences of any fire incident on the health and safety of workers, on neighbouring communities, on the environment and the on future viability of operations (e.g. material and reputational damage).

 

Any mitigating preventative and/or protective measures proposed for identified fire risks, should be recorded formally to an adequate level of detail, should be approved by management and be assigned to competent persons for completion within a specified period of time consistent with the level of the identified risk rating assigned to the corresponding fire hazard.

 

 

The COP should ensure that the risk analysis section includes information on the type and nature of fire hazards and any contributing operational and environmental factors for consideration in the structuring of adequate preventative and protective measures. Risk analyses should focus on the following but should not be limited to:

 

 

The COP should ensure that the potential for fires at a mine is determined using the fire hazard identification process described in section 8.1.2 above. Where specialised processes are undertaken, the assistance of recognised experts in the field of fire engineering should be sought.

 

 

Once the fuel and ignition sources have been identified, the fire risk should be characterised for each using information such as:

 

 

The location of a fire hazard could have a significant impact on the level of risk:

 

 

The COP should ensure that the fire risk assessments shall yield the following information that shall not be limited to:

 

Note: The composition and quantity of smoke and fumes generated in a fire are likely to have a significant impact on the consequence of the fire and hence the level of risk The impact of heat generated by an incipient fire should also be considered as a small fire in a "critical" location may provide sufficient heat to initiate a much larger conflagration.

 

 

In this section of the COP, the application of adequate controls for mines is described by considering fire prevention at the systems, processes and equipment employed at the mine. A control is an action aimed primarily at preventing the occurrence of a fire incident or an intervention intended to limit the impact of any incipient fire. These can take the form of a process or equipment re-design, implementation of different material selection criteria or of adequate operational standards.

 

Controls shall be assigned to each fire hazard and corresponding risks identified and defined in the fire risk management section. The number and degree of coverage of controls shall be commensurate with the level of anticipated risk.

 

All fire prevention controls should be listed in the COP and must be aligned with the findings of the various fire risk assessments. To this end, the COP should include a register listing all fire prevention controls (in place or planned) including risk based monitoring criteria together with the reference risk assessment document to which they are linked.

 

Critical controls are actions or interventions whose integrity will ensure that the hazard will not cause harm and should be recognised as such in the controls register. Monitoring criteria for the effectiveness of critical controls should be employed. Regular monitoring and recording of the performance of defined critical controls should take place.

 

The following section provides broad parameters applicable to relevant fire prevention controls. The COP should provide the objectives of each major control under the headings provided below. To provide the necessary guidance, reference should be made to the support notes provided at the end of this guideline

 

 

The COP should ensure that the design, construction and operation of any process or system employed at any mine conforms to regulated standards and design codes in compliance with the MHSA. In addition, the design, construction and installation of any equipment and machinery in use at mines must comply with national standards, applicable design codes and section 21 of the MHSA.

 

Inherent with this, is the requirement that systems, processes and equipment shall be designed, constructed and installed, so as to prevent or avoid contribution to the occurrence of fires under normal operations.

 

Annexure 4 General Design Requirements Mobile Equipment and Annexure 5 General Design Requirements for Fuel Storage Areas, Fuel Transfer Equipment and Refuelling Bays provides principles against which design, construction and operational parameters may be assessed in relation to fire hazards for inclusion in the COP.

 

 

The COP should identify fire hazards and record in the fire hazard register infrastructure and installations all that could pose a significant fire risk such as, but not limited to:

 

To minimise fire risk at critical installations and infrastructures, the following requirements should be considered at the design stage:

 

 

The COP should address the following list of fixed plant components that should be assessed as part of fire hazard identification audits. This list provides some guidance which is neither complete nor exhaustive:

 

Annexure 3: Mine infrastructure and fixed plant provides examples of preventative controls that should be considered underground and on surface for fixed plant components as classified in SANS 10108: Fire hazardous area classification.

 

The location of fixed plant equipment in underground and confined spaces should consider the normal flow of fresh air so as to guide the type, size and location of any fire detection and fire-fighting equipment.

 

All fixed electrical and related equipment such as sub-stations, switch-rooms and main distribution boards should be in accordance with applicable SANS standards (such as, but not limited to, SANS 60076 (2011): Power transformers, SANS 1029 (2008): Mini substations, SANS 62135 (2013): Resistance welding equipment and SANS 10280 (2013) - Overhead power lines for conditions prevailing in South Africa and:

(a)        Be designed constructed and installed in accordance with the manufacturer's standard;

 

Fire prevention measures and protection equipment considered for these installations shall be designed to address adequately and reasonably the level of fire risk.

 

Where flammable oil is used, fixed electrical equipment should:

 

The COP shall include details of any fire detection systems installed following the respective fire risk assessment action plan as well as of any fire-fighting equipment provided as a further protective measure. This specialised equipment should be designed, installed and maintained in association with competent fire engineering experts.

 

 

The COP should reference the design and operation of workshops both on surface and underground. The following aspects should be included in workshop standards and operating procedures:

 

 

The COP should address the risk posed by the operation of self-propelled mobile equipment at a mine or in a confined environment (e.g. a surface coal bunker) as determined by a number of factors such as:

 

The general design of vehicles should conform to minimum SANS 868: Compression (ignitions engine system and machines powered by such engine system, for use in mines with explosive gas) and plants as applicable or manufacturer's specification. The routing of electrical (power) cables, fuel and hydraulic lines, particularly in engine bays, near brakes and pinch-points should be such that incidental damage and contact with hot surfaces is avoided. Pipes and hoses should be manufactured from high quality; durable materials and the piping layout should consider abrasive action and allow for adequate mobility.

 

The integrity of the original manufacturer's design as accepted by the mine and in line with this COP, amongst others, should be maintained for the life of the equipment.

 

Annexure 4 General Design Requirements Mobile Equipment provides series technical solutions risks posed by the operation of self-propelled mobile equipment.

 

Annexure 6 Safe Use, Transport and Handling of Explosives provides examples of preventative controls that should be considered underground and on surface for the transport of explosives (Referencing to the explosive procedure in terms of MHSA regulation 4.2(b).

 

8.2.6        Managing fire potential

 

The COP must indicate measures to address the storage and use of such substances or materials that have a flash point below 60°C, including compressed gases such as acetylene and propane. The use and presence of flammable substances at a mine is inevitable and therefore the risk posed by these must be managed adequately. The relevant SDSs in accordance with SANS 10234 (2008): List of global harmonised classification and labelling of chemicals must be consulted to determine the type of any precautionary measures that require implementation.

 

The COP should set out measures to minimise fire risk associated with the storage or use of flammable substances at the design or selection stage. The following should be considered:

 

8.2.6.2        Combustible substances

 

The COP should address measures for the storage and use of combustible substances or materials at mines that generally have a flash point below 60°C. This includes Class 3 flammable liquids.

 

Foams and resins may be particularly volatile in their component form (i.e. prior to mixing). Where foams are used they must comply with SANS 1867 (2003): Sprayed plastic foams for use in mines.

 

 

The COP should address the following requirements related to the use and storage of flammable solid materials:

 

The use, transport and handling of explosives in mines may be considered to be an additional fire hazard. This COP should make reference to the relevant standards procedures and precautionary measures intended for the safe use, transport and handling of explosives used at a mine.

 

 

The COP should reflect the following requirements related to the use and storage of flammable liquids:

 

 

Annexure 5: General design requirements fuel storage areas, fuel transfer equipment and refuelling bays below includes reference to a number of items relating to fuel storage areas, fuel transfer equipment and refuelling bays for possible consideration in structuring standards supporting the management of fire risks associated with these.

 

Annexure 6: Safe use, transport and handling of explosives below provides suggestions that might be included in procedures for the safe transport handling and use of explosives. These are provided for possible reference and inclusion in operating procedures.

 

 

The management of risks associated with the natural occurrence of flammable gases in underground operations, i.e. resulting from mining operations, is not included in this COP. Reference should be made, however, to the respective COPs for the prevention of flammable gas explosions. This COP is to address the use of industrially manufactured flammable gases that may be used in various processes at a mine, mainly welding.

 

The COP should reflect the following requirements related to the use and storage of flammable gases used in "hot work ":

 

 

The COP should reflect the following:

 

Annexure 7: Generic operational and maintenance procedures below provides suggestions that might be included in procedures for generic operational and maintenance procedures. These are provided for possible reference and inclusion in operating procedures.

 

 

The COP should include the requirement that the mine's purchasing procedures be developed and implemented to ensure that any machinery, equipment or materials purchased for use at the mine comply with site standards. This procedure should:

 

 

The COP should reflect the requirements stated in Regulation 5.1 of the MHSA, in particular that:

"The employer must ensure that a competent person reports to the employer, at appropriate intervals determined in accordance with the mine's risk assessment, on—

 

The COP should include the requirement that a series of inspections relating directly to fire hazards be performed as follows:

 

Formal inspections must be recorded in adequately structured, fit-for-purpose reports. Any observed defects or deviations or irregularities are to be reported immediately verbally and then in writing to the legally appointed person - irrespective of the type or level of inspection being carried-out.

 

Annexure 8: Inspections provides guidance for consideration during inspections.

 

 

In all documents relating to training in elementary fire-fighting procedures, caution should be exercised so as to prevent employees from being exposed to danger during fire-fighting operations. It is recognised that the dousing of an incipient fire is an effective measure to limit the impact of any such incident. However, employees must be warned of the dangers of going beyond their level of knowledge and proficiency in using fire-fighting equipment.

 

The COP should set out measures to address awareness training under the following sub-headings:

 

 

Basic fire prevention awareness training should be provided as part of the mine induction.

 

Refresher training should then be conducted every 12 months as part of regular safety/tool-box meetings.

 

All personnel who work at the mine should have a basic understanding of fire prevention measures and be trained and assessed for competency in:

(a)        Basic fire theory;

 

 

In addition to the general fire awareness training, all operators of mobile equipment at the mine should be trained and assessed for competency, with the assistance of equipment manufacturers or suppliers where necessary, in the following preventative and precautionary measures:

(a)        The basics of conducting proper inspections;

 

 

All personnel who operate fixed plant at the mine should be trained and assessed for competency, with the assistance of equipment manufacturers or suppliers where necessary, in the following preventative and precautionary measures:

 

 

All personnel involved in the maintenance of mobile equipment at the mine should be trained and assessed for competency, with the assistance of equipment manufacturers or suppliers where necessary, in the following preventative and precautionary measures:

 

 

Personnel involved in the maintenance of electrical equipment or installations at the mine should be trained and assessed for competency with the assistance of equipment manufacturers or suppliers where necessary, in the following preventative and precautionary measures:

 

All personnel who undertake such work should also be appointed electricians qualified to work on the type of equipment (e.g. low voltage, high voltage, instrumentation, etc.).

 

 

Personnel involved in the transport, storage or handling of fuel, combustible materials and explosives at the mine should be trained and assessed for competency in at least but not limited to the following:

(a)        Transport and storage procedures relating to fuel, combustible materials or explosives;

 

 

The COP should reference broadly the mine's fire-protection and emergency response tactics for major fire hazards. In particular, this COP should describe the principles used in the selection of each tactic, the alignment of this with the respective fire risk assessment and any specialist input made in devising the protective measures and responses (e.g. fire engineering criteria to determine fire-fighting equipment specifications where deemed necessary, etc.).

 

Under this section, the COP should list and describe briefly the measures implemented for early detection of fires at different locations on the mine based list of fire hazard locations referenced in section 8.1.

 

Fire prevention measures as intended in this COP is a proactive endeavour aimed at eliminating the hazard of fire and should therefore be considered as the primary form of control. Fire protection is a secondary control aimed at reducing the consequences of a fire by limiting the severity and impact of a fire. Therefore, this guideline should be used in conjunction with the Guideline for emergency preparedness and response to provide a comprehensive and coordinated approach in addressing the fire prevention measures and control of fires.

 

Note: Under no circumstances should fire braziers (mbaula), i.e. any fixed or portable solid fuel or gas fired equipment or appliance designed for heating and used outdoors, be used at the mines.

 

 

The COP should set out measures to monitor and communicate the possible presence of fire. This system should include the following: