Occupational health and safety (OHS) law and standards are based on a technical approach to the management of OHS risk. In the technical literature, risk management is defined as a threestaged process (Ridley, 1990; Viner, 1996). First, hazards in the work environment are identified; second, the risk posed by these hazards is assessed; and finally, appropriate controls for risks are selected according to a risk control hierarchy (Mathews, 1993). The principle of this hierarchy is that control measures that aim to target hazards at their source and act on the work environment are more effective than controls that aim to change the behavior of exposed workers. Thus, technological control measures, such as the substitution of hazardous substances or processes and engineering controls, are preferable to individual controls such as the introduction of safe work practices or the use of personal protective equipment. Technical approaches to risk management use quantitative assessment techniques.
However, research evidence suggests that both psychological and social factors are also important in determining the way people perceive and respond to risks (Fischoff, Slovic, Lichtenstein, Read, & Combs, 1978; Slovic, 1987; Rayner, 1992; Douglas & Wildavsky, 1982). Perceptions and understandings of risk are important influences on the conceptualization of risk control strategies (Tesh, 1981). Perceived control of OHS risks has also been found to be an important theme in risk rating judgments of Victorian construction industry participants (Holmes, 1995; Holmes & Gifford, 1997). Research also suggests that construction workers' perceptions relating to their personal control over OHS risks and the responsibilities for risk control present barriers to the implementation of OHS strategies. Perceived controllability of OHS risk influenced the success of a behavior-based safety management program. Lingard (1995) found the program to be effective in improving safety practices believed to be within the control of construction workers. However, the program had little effect on improving safety practices that workers believed were not in their control, for example, the provision of safe equipment for gaining access to height to prevent fall fatalities (Lingard & Rowlinson, 1997, 1998).
Effective technical evaluation of risk may be hindered when people in the workplace do not share a common understanding of the nature of risk and its control. This may be particularly acute when distinct groups attribute risk to different sources (Holmes & Gifford, 1996) or experience the costs and benefits of risk controls differently (Viner, 1996). Attaining consensus and trust is important in the risk management decision- making process. In pursuit of this consensus, there is an increasing recognition that, in the context of acceptability of risks and issues of equity, psychological and social considerations should be taken into account in the management of OHS risk (DeJoy, 1994; Cox & Tait, 1998).
The construction industry poses a particular challenge for the attainment of consensus and the making of risk control ...