DRAFT for public comment

CODE OF PRACTICE

Foreword
Basis for code of practice
This code of practice is issued by Resources Safety under the Mines Safety and Inspection Act 1994, with the endorsement of the Mining Industry Advisory Committee (MIAC) and approval from the Minister for Mines and Petroleum. A code of practice is a practical guide to achieving the standards of occupational safety and health required under legislation. It applies to anyone who has a duty of care in the circumstances described in the code. In most cases, following a code of practice would achieve compliance with the duties in the legislation in relation to the subject matter of the code. However, like regulations, codes of practice deal with particular issues and do not cover all hazards or risks that may arise. Duty holders need to consider all risks associated with work, not only those for which regulations and codes of practice exist. Codes of practice are admissible in court proceedings. Courts may regard a code of practice as evidence of what is known about a hazard, risk or control and may rely on the code in determining what is reasonably practicable in the circumstances to which the code relates. Compliance with the legislation may be achieved by following another method, such as a technical or an industry standard, if it provides an equivalent or higher standard of work health and safety than the code. An inspector may refer to an approved code of practice when issuing an improvement or prohibition notice.

Scope and application

This code is a practical guide to assist those involved in designing, constructing, operating and decommissioning tailings storage facilities (TSFs) to meet their legislative obligations. Tailing storage facilities are reservoirs that store mine tailings, which is fine-grained waste material in suspension that is discharged from an ore processing plant or coal preparation plant. A TSF includes associated starter dams, erosion protection bunds, levee banks, diversion channels, and seepage collection trenches, pits, dams and ponds. This code does not apply to waste dumps, heap or vat leaching facilities, or underground mine fill.

Who should use this code?

You should use this code if you have functions and responsibilities for designing, constructing, operating, managing or rehabilitating TSFs. The code may also be used by supervisors, TSF personnel, and safety and health representatives who need to understand the hazards associated with constructing and operating TSFs.

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How to use this code of practice

The code includes references to bot mandatory and non- mandatory actions. The words must or requires indicate that legal requirements exist, which must be complied with. The word should indicates a recommended course of action, while may indicates an optional course of action.

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Contents
Foreword ............................................................................................................................. 2 Part 1 1 Introduction ........................................................................................................... 5

Introduction .................................................................................................................... 5 1.1 Aims ....................................................................................................................... 5 1.2 Structure of code .................................................................................................... 5 1.3 Roles of competent persons ................................................................................... 6 1.4 Further information.................................................................................................. 6 Information, instruction, training and supervision............................................................ 7 2.1 Introduction ............................................................................................................. 7 2.2 Information .............................................................................................................. 7 2.3 Instruction ............................................................................................................... 7 2.4 Training................................................................................................................... 8 2.5 Supervision ............................................................................................................. 8 Classification of TSFs ........................................................................................ 10

Part 2 3

Hazard-based approach............................................................................................... 10 3.1 Introduction ........................................................................................................... 10 3.2 Hazard ratings ...................................................................................................... 12 3.3 Classification......................................................................................................... 12 Requirements ...................................................................................................... 16

Part 3 4 5

Site selection ............................................................................................................... 16 Design ......................................................................................................................... 17 5.1 Design needs ........................................................................................................ 17 5.2 Design factors ....................................................................................................... 17 5.3 Design submission ................................................................................................ 19 Construction................................................................................................................. 20 6.1 Construction plan .................................................................................................. 20 6.2 Construction report submission ............................................................................. 20 Operation ..................................................................................................................... 21 7.1 Operations, monitoring and maintenance manual ................................................. 21 7.2 Operational record ................................................................................................ 21 7.3 Operational audits and reviews ............................................................................. 21 Emergency preparedness and plan.............................................................................. 23 Closure ........................................................................................................................ 24 9.1 Planning for closure .............................................................................................. 24 9.2 Decommissioning review ...................................................................................... 24

8 9

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Part 1 Introduction
1
1.1

Introduction
Aims

The aims of this code of practice are to describe: a set of outcomes for tailings storage facilities (TSFs) to meet the approval requirements of the project management plan under the Mines Safety and Inspection Act 1994 and Mines Safety and Inspections Regulations 1995, and the mining proposal under the Mining Act 1978 the variables to be considered to demonstrate that a TSF is safe and stable the recommended hazard management process for TSFs the broader occupational health and safety requirements for operating in accordance with the Mines Safety and Inspection Act 1994 and Mines Safety and Inspections Regulations 1995.

The code promotes a proactive approach to monitoring during construction, operation, and prior to closure so it is possible to predict a TSFs long-term performance and potential environmental impact after closure.

1.2

Structure of code

Part 1 introduces the code of practice and summarises the requirements for information, instruction, training and supervision to ensure the occupational safety and health of TSF and other affected personnel. Part 2 describes how a TSFs hazard rating, embankment height and location determine its classification. The level of TSF management needs to be commensurate with the potential impact of TSF failure or loss of integrity. Part 3 is structured to support a hazard management approach for TSFs that follows the life cycle of a TSF, including: site selection design construction operation emergency planning closure.

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1.3

Roles of competent persons

To assure a safe and stable TSF at the end of the life cycle, competent persons should: certify the design certify construction meets design specifications and tolerances ensure discharge materials are within design tolerances ensure performance is within operational tolerances provide training and assess competency of TSF workers conduct audits and reviews.

1.4

Further information

Guidance on how to achieve the outcomes described in this code is available from: The Australian National Committee on Large Dams Inc. (ANCOLD), www.ancold.org.au International Commission on Large Dams (ICOLD), www.icold-cibg.org

Specific guidance on handling tailings that potentially contain radionuclides is available from: International Atomic Energy Agency (IAEA), www.iaea.org

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2
2.1

Information, instruction, training and supervision

Introduction

The provision of information, instruction, training and supervision is an essential component of safe systems of work. The following sections describe what this means in practical terms for a TSF so personnel can undertake tasks safely and avoid harm to health.

2.2

Information

Personnel must have the information necessary to complete tasks safely. This may include: manuals provided by original equipment manufacturers (OEMs) the operations policies, procedures and plans applicable legislation, Australian and industry standards, and other guidance material.

2.3

Instruction

Personnel must be instructed about specific tasks to be undertaken, including the hazards and risks, the controls to be applied, and the job steps necessary to complete the tasks safely. Instructional tools such as job safety or hazard analyses (JSAs or JHAs), safe work instructions or procedures (SWIs or SWPs) and standard operating procedures (SOPs) may be used to document the process, but should be reviewed and amended if equipment or conditions change. Instructions must be approved by the supervisor or management.

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2.4

Training

People must be competent in the tasks they are assigned. This means they must have the knowledge and skills necessary to perform the task safely. Competency is gained through training and experience while being supervised or mentored. The risk management training provided must be appropriate to the assigned roles and responsibilities. It must provide information on: the risk management process task-specific safe work methods, including the safe use of tools and equipment and safe systems of work.

The effectiveness of training can be increased by using case studies, or examples, from mining workplaces to demonstrate risk management principles for specific hazards. Assessment of competency should be evidence based and verified before work commences. Competency may be verified: by recognition of prior learning (RPL) by on-site recognition or validation of current competency (RCC or VOC) via the operations training and development program.

All verification methods must include a documented assessment. There must also be a system to ensure affected personnel are consulted, retrained and reassessed whenever systems of work or plant and equipment change, or new systems of work or plant and equipment are introduced.

2.5

Supervision

Supervisors are responsible for the quantity and quality of the output of others and contribute to the development of technical solutions to non-routine problems. Supervision of TSFs includes managing assigned work areas and crews, communicating regularly with others, diagnosing and solving routine and non- routine problems, controlling work programs to ensure objectives are met, and maintaining operating records. Supervisors ensure a safe workplace by: confirming that workers are trained and competent for the task undertaken providing clear work instructions inspecting and monitoring workplace conditions continuously evaluating worker performance and correcting unsafe acts reporting and rectifying hazards assuring implementation of the companys safety systems demanding compliance with safety rules and procedures.

Effective supervisors spend most of their time in the workplace engaged with the workforce and conducting meaningful observations, consultation and interventions.

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Moving into a supervisory or team leader role involves the application of a range of new skills. Much of the additional responsibility comes down to managing people, and to do this successfully requires a comprehensive range of workplace communication skills. Information about resources to assist in the transition of operators to supervisory or team leader roles is available at www.skillsdmc.com.au

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Part 2 Classification of TSFs

3
3.1

Hazard-based approach
Introduction

The primary function of a TSF is the safe and economical storage of tailings in an erosionresistant, non-polluting structure that minimises environmental impacts. TSFs need to be individually tailored to the site, ore mineralogy, the plant process, and desired long-term landform and therefore will have a variety of designs and construction techniques. The design approach, construction method and decommissioning concept should be selected to suit the local conditions.

Above-ground TSFs
In an above-ground facility, tailings are generally stored behind a purpose built embankment. The embankment can be constructed to its designed maximum height in several stages or in one pass. In common with conventional water storage dams, the control of seepage waters from TSFs is important to maintain stability. However, the purpose-built tailings storage embankments differ significantly from water storage dams in a number of important aspects, including those described below. The design life of a TSF is normally considered to be perpetuity. A TSF could be considered to have two phases in its life a depositional phase with active human involvement followed by an unending erosion free, environmentally benign stage with no further human intervention. Rehabilitation aspects require careful consideration, as TSFs cannot be breached at the end of their service to allow the containment area or valley to return to its original condition. Instead, material and liquids or leachate must remain safely stored. The materials stored behind the embankment may be loose or poorly consolidated with some contained water. Contaminants of varying toxicity may also be contained within the impounded material. Under severe seismic shock, saturated tailings can liquefy to produce a mobile fluid of high unit weight, leading to additional loading on the embankment. Some containing embankments are constructed by hydraulic deposition, rather than mechanised placement. Many TSFs are developed progressively as part of a mining operation; they can be constructed in stages, over a period of years, with the embankment being raised to keep pace with tailings production. Their staged development allows performance reviews which enables a more flexible approach compared with conventional water storage dams. However, this design flexibility may, to a certain degree, be offset by a generally lower standard of construction control than is the case for water storage dams. TSFs can be raised by upstream and centreline methods. A well designed, constructed and operated TSF can achieve a significant drawdown of

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the phreatic surface in the tailings material near the embankment. As tailings deposition continues, with embankment raising, the embankment can derive a significant amount of structural support from the tailings material. The presence of materials that could contaminate the downstream environment (e.g. sulphide minerals generating acidic leachate, heavy metals) should be recognised and managed in an environmentally appropriate manner.

Tailings may also stored with waste rock in the same facility.Co-storage requires careful consideration of a number of factors, including the available void volume in the waste rock material; the relative proportions of waste rock, tailings solids and tailings fluids; and the strength of the waste rock material and its resistance to compaction and consolidation with a consequent reduction in void volume.

Below-ground (in-pit) TSFs

Direct storage in previously mined-out open pits or underground openings below the natural ground level is an alternative method for tailings storage used by some mine operators. In practice, this approach is more difficult to manage than above-ground storage due to difficulties with the removal of contained fluid, and the resultant low densities of deposited materials. These challenges mean that approval to adopt below-ground storage will usually require extensive geotechnical, hydrogeological and environmental studies to establish the viability and long-term safety of below-ground storage of tailings. Below-ground storage should only be considered when: there is no possibility of a potentially viable mineral resource being sterilised by the deposition rehabilitation measures are provided to ensure that there is no long-term environmental impact or public safety hazard there is no possibility that safety in any operating underground mines in the vicinity will be jeopardised by the proposed TSF future underground mining beneath the stored tailings is not contemplated or likely.

The main difficulty with in-pit storage is the rapid rate of rise of tailings level in the early phases of deposition. This is when the pit is deepest and the exposed surface area is smallest, with a consequent reduction in the effect of solar drying and desiccation on a given volume of tailings compared with typical above-ground TSFs of the same overall capacity. Water management in these circumstances can be very difficult, and methods should be considered to increase water recovery, or extract water and thicken the tailings slurry before deposition.

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3.2

Hazard ratings

The hazard rating assigned to an individual TSF will be high, significant or low. The rating is not an assessment of the risk of failure, but rather the potential impact of any of the following scenarios: controlled or uncontrolled escape of tailings material or liquor seepage of tailings liquor overflow or leakage of tailings liquor an abrupt failure of the tailings retention embankment.

Depending on the public facilities and mining infrastructure located close to the TSF, a dambreak study should be completed to show the impact of a failure of the embankment. The scope of the study should determine the extent, travel times and velocities of potential flooding or tailings flow slides, and any safety, health and environmental effects on the downstream area. The dambreak study should investigate the case of worst-case flood levels being contained in the TSF at the maximum design tailings storage level. Since the hazard rating is a function of the potential impact, a well designed and constructed embankment, or a well-operated TSF, may still receive a high or significant hazard rating. The hazard rating is derived for the whole life of the TSF (including future raises) by considering the potential impact of the scenarios on: the safety and health of people the environment any property infrastructure mining developments (including those of the TSF operator).

Table 1 shows the hazard rating system that applies to TSFs in Western Australia. Note: For TSFs with no embankments, only Part I of Table 1 should be used. However, there may be exceptions. For example, for an in-pit TSF located adjacent to an operating open-pit mine separated by a narrow land bridge or waste dump, Part II of Table 1 is applicable, with the land bridge and waste dump treated as an embankment.

3.3

Classification

Hazard rating, embankment height and location are used to classify TSFs in Western Australia. To maintain a consistent approach to hazard identification and management under this code, above-ground TSFs are classified as a Category 1, 2 or 3 facility based on the TSFs hazard rating and embankment height (Table 2). In-pit TSFs comprise the fourth class. A TSFs classification will determine the degree of investigation, design input, construction supervision, and ongoing assessment and review necessary to assure it is safe and stable at the end of its life cycle.

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Where the TSF is used to store wastes potentially containing radionuclides, the facilitys management must also be consistent with the applicable safety standards of the International Atomic Energy Agency (IAEA).

Category 1 TSF
Category 1 TSFs have the highest potential for extensive loss of life and other health impacts, loss of stock and environmental damage in the event of failure. Note: Cross-valley TSFs or those that block or significantly impede flow in natural drainage lines should be treated as Category 1 TSFs, regardless of the embankment height.

Category 2 TSF
In the event of failure, Category 2 TSFs have a lower potential impact than Category 1 TSFs.

Category 3 TSF
Category 3 TSFs have the lowest potential impact in the event of failure.

In-pit TSF
In-pit TSFs typically have the lowest potential for surface degradation because it is unlikely that the TSF would fail, but there is the potential for inadvertent access and environmental damage through groundwater contamination. Note: Some in-pit TSFs are converted to above-ground TSFs by constructing a perimeter embankment away from the edge of the pit. In this case, the above-ground TSF classification should be applied. For central thickened discharge facilities and dry stacked tailings, the maximum stack height may be used instead of the maximum embankment height. Table 1 Hazard rating system applicable to TSFs in Western Australia Hazard rating Type of effect High Significant Low

Part I: Controlled or uncontrolled release or seepage Adverse health effects Location is such that chemical contamination of water likely to be used for human consumption and consumption of the contaminated water are expected Location is less critical but contamination of water likely to be used for human consumption and consumption of the contaminated water are possible although not expected No contamination of water likely to be used for human consumption is expected

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Hazard rating Type of effect High Location is such that radioactive contamination of residential or habitable areas is expected Loss of stock Location is such that contamination of water likely to be used for stock consumption and consumption of the contaminated water are expected Significant Location is less critical buy radioactive contamination of residential or habitable of areas is possible Location is less critical but contamination of water likely to be used for stock consumption and consumption of the contaminated water are possible although not expected Environment feature is less significant or damage is possible but not expected Low No radioactive contamination of residential or habitable area is expected

No contamination of water likely to be used for stock consumption is expected

Environment damage

Location is such that damage to an environmentally significant feature is expected

No significant damage to environmental features is expected

Part II: Embarkment failure (assessment is based on dambreak study) Loss of human life Loss of life is expected because of community or other significant development No loss of life expected but the possibility is recognised No urban development and no more than a small number of habitable structures downstream Adverse health effects Chemical contamination resulting in health hazards or loss of residential or habitable areas is expected Short term (< 3 months) chemical contamination of residential or habitable areas is possible No contamination is expected No loss of life is expected

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Hazard rating Type of effect High Radioactive contamination resulting in health hazards or loss of residential or habitable areas is expected Excessive economic loss is expected, such as serious damage to communities, industrial, commercial or agriculture facilities, mine infrastructure, the storage itself or other storages downstream Storage essential for services and repairs is not practicable Significant Short term (< 3 months) chemical contamination of residential or habitable areas is possible Appreciable economic loss is possible, such as damage to secondary roads, minor railways, relatively important public utilities, mine infrastructure, the storage itself or other storages downstream Repairs to storage are practicable Low No radioactive contamination is expected

No significant economic loss is expected, with limited damage to agricultural land, minor roads and mine infrastructure

Repairs to storage are practicable and indirect losses are not significant

Table 2 Matrix of hazard ratings and height used to classify above-ground TSFs in Western Australia Maximum embarkment height > 15 m 5 - 15 m <5m Hazard rating High Category 1 Category 1 Category 1 Significant Category 1 Category 2 Category 2 Low Category 1 Category 2 Category 3

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Part 3 Requirements
4 Site selection

The site for a TSF should be selected with regard for the impact of the facility on the surrounding infrastructure and environment, particularly in the event of seepage, dust generation, chemical or particulate exposure, erosion, overtopping or an abrupt embankment failure, either during operations or after closure. Factors that affect site selection include: hydrology (e.g. potential for flooding, catchment area characteristics) topography (e.g. influence of watershed, streams and creek systems) surrounding area (e.g. proximity to public infrastructure, centres of population, operational mine sites, camps and areas of environmental significance) foundation material (e.g. water tightness, strength, liquefaction potential) construction materials (e.g. suitability, availability, proximity) climate (e.g. rainfall patterns, evaporation rates, prevailing winds) proposed construction methods (e.g. upstream, centreline and downstream raising).

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5
5.1

Design
Design needs

The objective of the design process is to achieve a design where the risk of failure or damage to the TSF is remote. The TSF design needs to demonstrate facility integrity and safety during: normal operation abnormal operation (e.g. decant pump failure, pipe breakouts) extreme events (e.g. seismic loading, extreme weather) post-closure.

The design must satisfy the safety requirements of section 9 of the Mines Safety and Inspection Act 1994, the environmental requirements of the Mining Act 1978 and Environmental Protection Act 1986, and other State and national legislation as applicable.

5.2

Design factors

The following criteria influence the design of a TSF and their assessment should be documented during the design and construction phases: hazard classification site conditions geology (e.g. bedrock, structure) geomorphology foundation conditions (e.g. physical, geochemical and geotechnical properties) hydrogeology terrain climate seismicity surface hydrology (e.g. drainage patterns, flood volumes) minimum freeboard decant pond design characteristics of tailings and construction materials (e.g. physical, geochemical and geotechnical properties) seepage control measures availability of suitable construction material construction method (e.g. upstream, centreline and downstream raising) embankment stability, erosion resistance, and resistance to dynamic or static liquefaction instrumentation and monitoring operating method requirements for access characteristics and availability of capping materials closure requirements.

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Note: When considering the option of an upstream raising to a TSF, there are increased risks associated with potential liquefaction of constituent materials. Suitable screening criteria should be applied to determine whether further quantitative evaluation of the liquefaction potential is required.

5.3

Design submission

A competent person should: certify that the design achieves the occupational safety and health, and environmental outcomes required under applicable legislation specify the: ongoing design verification and validation methods construction, operational and maintenance principles closure plan.

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6
6.1

Construction
Construction plan

The mine operator should develop and implement a construction plan with quality assurance procedures to ensure that the TSF construction meets design specifications and tolerances.

6.2

Construction report submission

A competent person should certify that the TSF meets design specifications and tolerances and prepare a report that: documents the conditions encountered during construction and verifies them against those assumed in the design includes a non-compliance report with documented remedial measures if the conditions encountered did not meet the original design or specifications includes a variance report if the construction was required to deviate from the original design demonstrates that the testing and measurement regime was appropriate and sufficient to validate the design parameters includes survey drawings of the TSF showing the true positions of features such as borrow pits, embankments, drains, monitoring instrumentation, decant towers, and buried pipework and cables (see Resources Safetys Mines survey code of practice, published in 2011).

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7
7.1

Operation
Operations, monitoring and maintenance manual

A competent person should develop and maintain an operating manual for TSF operators that provides: documented procedures for the safe and efficient storage of tailings in line with the assumptions and principles adopted by the designer documented processes that comply with legislation and public expectations, and can be used as a reference during auditing of the facility.

The operational manual should be current and contain: deposition and operational methods instrumentation, monitoring and inspection requirements, and schedules maintenance requirements and schedules ongoing verification requirements and schedules audit criteria and schedules an operational stage risk register health and safety, quality, environmental and training plans trigger action response plans emergency response plans. rehabilitation plans and schedules legislated criteria.

7.2

Operational record

A TSF is monitored to provide a measure of actual performance against expected performance as described in the mining proposal for the project. As well as conventional environmental monitoring for dust, gases and water, it is recommended that the following aspects are recorded: tailings densities tailings properties inflow volumes storage volumes deposition time remaining.

The TSFs performance during significant seasonal events should also be recorded.

7.3

Operational audits and reviews

A competent person should prepare a TSF review program that includes auditing and ongoing verification activities in accordance with the design specifications and regulatory requirements.

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The audits and reviews should be conducted by a competent person. The type and level of information provided in audit and review reports should be commensurate with the TSFs hazard rating and classification. Matters expected to be addressed in reports include: current survey plan of the facility showing spot elevations along walls and across tailings beaches where possible reconciliation of stored volume and calculated densities with expected values from the mining proposal; an assessment of available capacity remaining in terms of volume and time assessment of deposited tailings properties water balance studies with an approximate reconciliation of slurry volumes, solids content, decant recovery, site rainfall and evaporation validation of TSF design, using input parameters derived from site measurements and testing; implications for future of the facility if present trends are continued recommendations for any necessary operational or design modifications monitoring results and analysis; proposals for additional monitoring of identified problem areas; implications of monitoring results (e.g. changed management practices or new works) and proposals for any necessary seepage recovery systems problems, failures and successes, and any alterations to the facility or operations that are proposed overview of any wall lifts completed since the last audit or review, how they were built, and any lifts proposed for the coming year.

A record of audit and review outcomes should be maintained by the mine operator, including any actions recommended in the audit or review, and details of how they were addressed or implemented.

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Emergency preparedness and plan

A TSF emergency action plan should be developed and maintained in line with the mines emergency response plan, and be kept as part of the TSFs operating procedures. It should contain: assignment of responsibilities information relating to any warning or emergency alarm systems description of the emergency procedures

It should address potential emergency scenarios such as burst pipelines and those identified in the dambreak study. The TSF emergency action plan should: be written in plain English be compiled and laid out to facilitate quick access to important information include appropriate use of illustrations such as maps be available to all affected personnel on site.

The plan should be regularly tested to ensure its effectiveness. Both desk-top tests and emergency response drills involving onsite personnel should be carried out. Evacuation drills can be used to evaluate how people respond. Debriefings conducted as soon as practicable after an emergency or drill will help identify modifications needed to improve the TSF emergency action plan.

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9
9.1

Closure
Planning for closure

As TSFs are a critical closure issue, the TSF closure plan must be developed in line with the overall mine closure plan required under the Mining Act 1978. This plan will begin as a conceptual plan at the design stage, becoming more detailed during the operation of the mine as it accommodates relevant operational change, new regulations and new technology. The initial TSF design should include ongoing survey, monitoring and instrumentation so that some post-closure assumptions can be verified prior to closure, or data obtained to increase the reliability of post-closure performance predictions. The mine closure plan should also consider premature or temporary closure of the TSF due to unplanned suspension of mining operations.

9.2

Decommissioning review

Before the cessation of a TSF, a competent person should assess the facility and prepare a report that includes: a review of the status of the structure and its contained tailings updated site plans an examination of the implications of the physical and chemical characteristics of the materials and remediation measures if required a review of the results of all monitoring validation of the TSF design for long-term stability the proposed rehabilitation stabilisation works long-term flood management strategies.

There will be time after TSF decommissioning, and before closure, when continued monitoring is required to assure a safe and stable landform as per the design intent.

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RSDNov12_823