Exploring Factors Impeding the Implementation of Health and Safety Control Measures in the South African Construction Industry

Abstract

Organisations have provided health and safety (H&S) control measures for construction activities, but the literature suggests that implementing these measures in the construction industry remains a challenge. This study aims to explore the factors impeding the implementation of H&S control measures (barriers). The study followed a qualitative research approach using interview form as a data collection tool designed to collect qualitative data on the factors impeding the implementation of H&S control measures. Purposive sampling method was adopted. The content analysis method was used to analyse the collected data. The findings reveal that the implementation of H&S control measures is affected by different barriers. The study uncovered eight main barriers (lack of management support and commitment, implementation costs, lack of training and education, language and cultural differences, time pressure, prioritisation of production over H&S issues, lack of worker involvement and participation and lack of communication) to the implementation of H&S control measures. Respondents were mainly from H&S background; it would be interesting to explore the perceptions of site managers, engineers, designers, supervisors and field workers through the use of a quantitative approach involving a larger sample. By identifying and understanding these barriers to the implementation of H&S control measures, construction organisations could be in a better position to control construction hazards. This paper adds value to construction organisations and professionals’ understanding of barriers to the implementation of H&S control measures on construction sites. The study also recommends measures to remove barriers or facilitate better implementation of H&S control measures on construction sites.

1. Introduction

Hazards such as working at height, excavation, welding, lifting, driving and manual handling are prevalent at construction sites. Construction industry exposes workers to biological, chemical, physical, mechanical, psychosocial and ergonomic hazards [1]. By contrast, several scholars believe that these hazards can be controlled [2,3,4]. Likewise, organisations which are unable to deal with these hazards increase the likelihood of workers suffering from injuries, illnesses, diseases and accidents. This can lead to loss of income, life, skills and productivity [5,6,7]. The construction industry is known for being a source of accidents and ranks high in terms of injury rates. The situation is not different in South Africa and United Kingdom [6,8]. Thus, both developed and developing countries remain affected by accidents [6,9]. Others have indicated that the accident rate is higher in developing countries than developed countries [10,11]. Ref. [10] in their recent study on health and safety (H&S) practices, recommended that appropriate and preventative actions should be taken to improve H&S in developing countries. Theoretically, lack of control contributes to accidents which may lead to higher accident rates. Several studies have argued that control measures should be implemented to manage hazards. Ref. [12] used a toolbox talk training as one of the measures to reduce the potential for occupational injury, while [13] explored the use of safe work method statement in controlling risks. Similarly, it is stated that implementing H&S management system is key to reducing site risks [13,14]. On the other hand, ref. [15] concluded that the design construction technologies such as building information modelling, virtual reality and augmented reality could be used to predict and control hazards. The above studies show that different H&S measures are used to control hazards on construction sites. H&S specifications, plans, safe working procedures, H&S induction training, method statements, construction design technologies, training, personal protective equipment (PPE), guarding and isolation are some of the examples used to control hazards [2,16,17,18]. Additionally, hazards can be designed out [19] or eliminated [2,20]. This can reduce costs and time spent dealing with hazards during the construction phase. Several authors have recognised the value of H&S control measures in managing construction activities [2,3,20] or any workplace activities [21,22]. Practically, organisations have provided H&S control measures for construction activities. Ref. [3] explored small business construction industry participants’ understanding of H&S risk control. Participants were asked to identify appropriate control measures for skin diseases and fall. Although some barriers and facilitators were identified, a study by [3] focused more on understanding of H&S risk control. Hence, the current study attempts to provide an understanding on the barriers to the implementation of H&S control measures.

On the other hand, ref [2] investigated the quality of control measures for electrical hazards. The reviewed studies suggest that implementing appropriate control measures in the construction industry remains a challenge even though most accidents are attributed to poor hazard identification and control. Previous studies [2,3] on H&S control measures have focused on the application of hierarchy of hazard control and few studies have investigated the implementation of H&S control measures. The current study seeks to provide the factors impeding the implementation of H&S control measures (barriers) in the South African construction industry. The study objective is to identify the factors impeding the implementation of H&S measures. The identification of factors hindering implementation of H&S control measures is critical for adequate and effective hazard control. Given the above, the current study aims to explore the factors impeding the implementation of H&S control measures.

The next section discusses the literature relevant to this study. Topics such as hierarchy of controls, H&S management challenges and challenges relating to implementing H&S control measures are discussed. To achieve study objective, a qualitative study is adopted, and open-ended questions are used to explore the factors impeding the implementation of H&S control measures. The results are presented and discussed. Finally, the study conclusion and recommendations are presented.

2. Literature Review

2.1. Hierarchy of Hazard Controls Theory

The hierarchy of hazard controls theory has been used across different industries as a tool to select appropriate controls. To demonstrate its significance, it has been used for minimising lighting risks [21], integrating urban road safety and sustainable transportation [23], understanding H&S risk controls [3], managing electrical hazards [2] and common construction activities [16]. However, the hierarchy of hazard control is usually preceded by Hazard Identification and Risk Assessment (HIRA) process. According to [3] HIRA process is followed by identifying and implementing the appropriate controls. Once the hazard is identified and risk assessed, the attention shifts to control measures. Alternatively, if hazard identification is not performed correctly, the determination of control measures becomes irrelevant. This means that unidentified hazards and unassessed risks negate the implementation of control measures. Similarly, ref. [24] states that hazard identification is critical for the assessment of risks and implementation of control measures. Thus, the relationship between HIRA process and selection or implementation of control measures should be understood well when managing H&S on construction sites.

Workers are encouraged to use hazard control hierarchy theory when selecting appropriate control measures [16]. According to this theory, there are five ways in which hazards can be managed: elimination, substitution, engineering, administrative and PPE [3,22,25]. Higher-level controls are also known as technological controls, while lower-level controls are known as behavioural controls [2,3]. The hierarchy of hazard controls further emphasises that top controls are more effective than bottom controls. This is also highlighted by [3,16], who suggest that controls focusing on changing worker behaviour are less effective than those which target hazards at their source, as well as work environment, or those aiming to change hazards. Despite this, a study by [16] found that construction organisations still use training and PPE more than other high-level controls. Similarly, ref. [2] found that behavioural controls were predominant in the construction industry. It is argued that these controls should be used together with the higher controls. This implies that PPE and administrative control should be used in combination with either elimination, substitution or engineering. According to [16] PPE should be used to increase the effectiveness but not used unilaterally, since it cannot ensure complete protection for workers [2]. The effectiveness, reliability and cost benefits of elimination, substitution and engineering controls make them the best options for improving H&S. Similarly, according to [20] the implementation of these controls does not depend on the performance of construction workers, whereas the implementation of behavioural controls requires workers’ efforts [2]. As such, substitution and engineering controls should be preferred over administrative and PPE controls. A typical example can be the use of handrail over safety harness, because the latter offers individual protection, while handrail offers collective protection. Consequently, it has become clear that the implementation of control measures is based on their appropriateness and effectiveness. Hence, convenience and availability should not be the key factors when considering control measures.

H&S control measures are many and diverse. Ref. [3] provided examples of H&S control measures such as permanent edge protection, railings and screens guarding openings in roofs, guardrails and toeboards, fixed covers, safety net, avoiding working in windy conditions, regular inspections, warning signs, fall arrest system and working at height training to prevent falls from height. Different control measures are available and can be implemented to control hazards at construction sites. Disconnecting electrical circuits with electricity source, using cordless power tool, using non-conductive ladders, introducing lockout/tagout procedure and providing relevant PPE are identified among the control measures for electrical hazards [2]. Pretask planning, authority to stop work and hazard identification are some of the methods used to control hazards on construction sites [25]. The above studies indicate that different H&S control measures are implemented to control hazards.

2.2. Health and Safety Management Challenges

Several studies have been conducted in the construction industry to investigate the challenges of implementing H&S. Ref. [26] identified the benefits and obstacles of implementing safety management system. Part of the results revealed that lower priority due to cultural differences, workers’ high turnover rates, tight project schedules, obstruction by subcontractors and inactive participation by the project team members were identified as obstacles to implementing safety management system. Similarly, ref. [27] conducted a study to identify barriers to the implementation of a safety programme in the construction industry. The study identified barriers such as insufficient safety resources, poor safety commitment, poor accountability, lack of safety training, lack of safety knowledge, lack of safety control, non-existent safety management programme, lack of safety standard, no safety rules and policies, no safety officers, lack of competent workers, tight project schedule and lower priority for safety. Ref. [28] explored factors hindering the implementation of COVID 19 safety regulations. The cost of implementing COVID-19 safety measures, the lack of compliance and ignorance and lack of knowledge were the three top-ranked barriers to the implementation of COVID-19 safety regulations. Ref. [29] determined the obstacles hindering the adoption of H&S programme in the construction industry. The study found unconducive work climate, poor governance, safety awareness and unsupportive industry norms as the four main obstacles to the adoption of H&S programme.

On the other hand, ref. [6] identified limited resources, financial support for training, processes and equipment as main challenges of managing H&S. Some general barriers to the implementation of the H&S programme have been identified. These can include lack of resource, lack of H&S knowledge, training, construction experience, management commitment, poor H&S culture, lack of H&S management system, poor enforcement, lack of legislation, lack of H&S committee, lack of risk control measures [2], time and cost constrains [6,30], poor collaboration among professionals [31] and resistance to change [6]. A study by [32] found implementation costs, poor safety culture, lack of safety commitment from clients, lack of managerial commitment, lack of strict enforcement of H&S regulations and lack of resources to implement safety are the top six barriers to good safety practices among small and medium organisations in Malaysia construction industry. In Australia, a study found that implementation costs, language, education and fear of change were the main barriers to implementing H&S reforms [33]. Barriers to the implementation of H&S have been identified by previous studies.

On the other hand, in South Africa, [34] found that the need to manage hazards, the importance of H&S to organisations, and compliance with H&S legislation were the three top ranking drivers behind the H&S implementation. Study in Nigeria [35] found the significant relationship between the effectiveness of safety intervention programme and communication implementation strategies for reducing accident accidents [36]. Study identified barriers such as resistance to change, gaining managerial commitment, insufficient resources and prioritisation of production over safety for effective implementation of interventions in tackling occupational ill health. Five factors (lack of supervision, lack of worksite inspection, unsafe behaviour and attitudes, poor housekeeping and lack of knowledge) affecting successful implementation of safety control practices on construction projects [37]. Ref. [38] investigated the factors that affect the implementation of occupational health and safety management system on construction sites. The findings revealed that internal factors such as risk control strategies, senior management commitment and support and communication, and external factors such as pressure from clients on project delivery, company reputation, H&S enforcement and government legislation affect the implementation.

Several studies have reported on the importance of controlling risk or hazard and how control measures can be used to control hazards. Legally, organisations are obliged to control hazards to the best of their ability. The importance of implementing control measures is well documented in the H&S field. Lack of health and safety knowledge can contribute to wrong identification of hazards, misperception of risk and incorrect selection of control measures. According to [6] lack of common understanding of H&S risk control may affect the effective evaluation and correct selection of control measures. Findings by [6] reveal that workers had limited understanding of risk controls and were focused only on administrative and PPE controls. This study further identified the cost of implementing engineering controls, inadequate enforcement, ignorance of risk and failure to consult on material selection as barriers to the implementation of risk control by small business construction organisations. According to [39] other controls such as administrative and PPE can be expensive. Similarly, ref. [40] argued that eliminating or substituting a hazard is unlikely to require additional costs. On the other hand, ref. [39] indicates that the cost of engineering control can be higher when compared with the PPE programme. Ref. [24] investigated the level of safety hazard identification in UK and found that the significant number of hazards remain unidentified. The study further found the barriers to improving hazard identification include lack of information sharing, reliance upon tacit knowledge, subjectivity, lack of standardised approach, undefined structure of tasks and hazards and lack of resources, such as having a full-time safety department. Previous studies on H&S control measures have focused on the application of hierarchy of hazard control, none or few of which have generally investigated barriers to the implementation of H&S control measures. The current study seeks to provide barriers to the implementation of H&S control measures. The identification of the barriers to the implementation of H&S control measures is critical for adequate and effective hazard control.

3. Materials and Methods

3.1. Research Design

This study adopted a qualitative research approach. This approach enabled the researcher to understand the meanings participants attach to the problem. This was important since the study sought to explore factors impeding the implementation of H&S control measures (barriers). Understanding the experiences of construction professionals regarding the barriers to the implementation of H&S control measures is important. Hence, qualitative research focusing on qualitative data is suitable. This kind of study focuses on obtaining deep meaning of the respondents’ perceptions instead of mainly relying on numbers [40]. This is also relevant since [19] found that qualitative research method is underrepresented in construction H&S research in developing countries. Recently, ref. [28] adopted a similar research design.

3.2. Population, Sampling and Response Rate

The study focused on construction projects taking place in South Africa. The target respondents included construction professionals involved in hazard identification and risk assessment and control (HIRAC), such as construction managers, supervisors, designers, engineers and H&S professionals. The inclusion of designers and engineers is critical since they suggest H&S control measures in their designs. Moreover, HIRAC requires the involvement of different participants. It should be noted that this process should not be conducted by only one person. The first five questions on the interview form focus on the criteria for selecting respondents. A purposive sampling method was used to select respondents who met the following requirements: willingness to participate, currently working on construction sites in South Africa, involved in implementing H&S control measures, aware of or know about baseline risk assessment and have five years experiencing working in the construction industry. Purposive sampling was used because the aim was to gain rich, localised and contextualised information.

According to [41], samples between 5 and 25 are adequate for qualitative studies. Reference [28] have used 15 respondents for qualitative study. Hence, for this study, at least five respondents were required to be participate. Furthermore, the qualitative study by [42] used five respondents to explore the construction H&S practices in Lagos, Nigeria. Hence, responses from 11 respondents were considered adequate for data analysis. All the respondents had HIRAC knowledge, direct involvement and over five years’ experience in implementing H&S controls on construction sites. A total of 20 self-administered interview forms were distributed. In total, 13 interview forms were returned, and only 11 were deemed usable after data screening.

3.3. Data Collection

Data were collected using interview forms that were sent to construction professionals. Face to face or online interviews would have been ideal; however, respondents did not feel comfortable with their voices being recorded. Hence, the use of interview forms was preferred over face-to-face and online interviews. Interview forms can produce similar results as face to face or online interviews if used properly, because they can allow the exploration of problems or questions without providing predefined answers as in the case of closed-ended questionnaires. The interview form was used to elicit data on participant knowledge and experiences regarding the implementation of control measures. Unlike structured questionnaires, interviews provide respondents with an opportunity to provide explanations or more details on a specific topic. The interview form was used to ensure the researcher poses the same questions to all respondents. Additionally, the use of this data collection method was to improve participation and enable respondents to have greater freedom and privacy. Literature review, researcher’s prior experience and feedback from pre-test processes were used to develop interview questions. The interview form was given to five individuals to check for grammatical errors, check whether questions were clear and direct, determine the time for completion, suggest if additional questions should be added and provide any other inputs to facilitate easy completion.

Only three individuals participated in the pre-testing of interview forms and no reason was provided for non-participation. Feedback from these participants suggested that barriers should be added in brackets next to factors impeding the implementation of H&S control measures, as well as a separate question which would allow respondents to elaborate. Two respondents indicated that it took between 20 and 25 min to complete the interview form, while the other respondent said it took between 40- and 45-min. General suggestion was made that the author should check the entire interview form for any grammatical errors. Following the feedback, an interview protocol was revised to include the inputs given. Respondents were given ten days to complete the interview form. Some respondents returned completed interview forms within two to eight days, and regular reminders were sent to other respondents who did not reply in time. The study took place between January and April 2024. The questions were classified into two main groups. The first group focused on the respondent’s eligibility to participate in the interview, and this consisted of five questions. The second group focused on the respondent’s lived experiences of the factors impeding the implementation of H&S control measures (barriers). A set of open-ended questions were asked, including the following: What are the barriers to the implementation of H&S control measures? How exactly would such barriers hinder or stop the implementation of H&S control measures? Further questions were asked to allow respondents to elaborate and confirm or substitute the information provided in the preceding questions. These questions were motivated by previous studies investigating challenges or barriers in implementing health and safety in general [27,28,29], which also provided theoretical basis for this study.

Follow-up questions were included to ensure that the respondents’ responses were not limited. To ensure the trustworthiness of the study, the following were considered: confirmability was achieved through methods such as member checking, where the interview draft was sent back to each respondent. Respondents were encouraged to provide comprehensive and detailed explanation to ensure transferability, and dependability was achieved by ensuring a list of interview manuscripts was kept. The respondents had to meet the selection criteria in Section 3.2 to ensure credibility. Furthermore, each participant was given the opportunity to verify and comment on the correctness of data collected. Finally, the researcher included some additional information from the respondents. Respondents were informed that consent is granted upon completing the interview forms, and the ethics clearance certificate was obtained from the institution to conduct the study.

3.4. Data Analysis and Interpretation

The content analysis method was used to analyse collected data. Additionally, an excel spreadsheet was used for better presentation. Past research has shown the importance of content analysis for analysing qualitative data [28]. It is also appropriate in cases where diverse and rich information is available. Since the current study aims to explore factors impeding the implementation of H&S control measures, content analysis was critical in describing the information provided by the respondents. The study followed the six steps as described by [43] for analysing qualitative data: become familiar with the data, generate initial codes, search for themes, review themes, define and rename themes and produce reports. The above method was recently used by [28]. In the current study, the researcher first screened the responses to the open-ended interview questions. Secondly, all the responses were studied and coded manually in an Excel spreadsheet. Thirdly, descriptions were generated from each response. Fourthly, similar themes were grouped together. Responses were identified by calculating frequencies and percentages. Finally, the findings and discussion report were produced. In addition to content analysis, the number of participant responses was counted to determine the level of significancy. Any response mentioned once by the participants was considered less significant, and any response mentioned more than four times was considered significant. This method was used more recently by [44]. Ref. [45] proposed that the frequencies of theme (barriers) should be determined based on the number of individual respondents who mention a particular theme, not on the total number of times a theme appears in the response. Using this method can assist in reaching consensus among the participants. Consensus reaching is consistent with the approach used in qualitative studies [31,45]. For example, if respondent R1 mentioned a theme (barrier) ten times, this does not mean ten is the total number of times the theme appears in the entire study. The total was based on responses given by all respondents. Respondents’ names were not required, and symbols R1, R2 and others were used to identify the respondents. Tables were used to present the study results, and the direct responses of participants were used for discussion.

4. Findings

4.1. Respondents’ Personal Information

Respondents were asked to indicate if they were currently working on construction sites in South Africa. This question was used to determine if respondents would have relevant experience.

Table 1. Respondents’ details.

Respondent	Knowledge of Baseline Risk Assessment	Involvement in Implementing H&S Controls	Experience in the Construction Industry	Occupation	Qualification
R1	Yes	Yes	5 years	H&S manager	Honours Degree
R2	Yes	Yes	11 years	H&S specialist	Honours Degree
R3	Yes	Yes	8 years	H&S practitioner	Honours Degree
R4	Yes	Yes	15 years	H&S officer	Degree
R5	Yes	Yes	12 years	H&S officer	Honours Degree
R6	Yes	Yes	14 years	H&S agent	Degree
R7	Yes	Yes	6 years	Site manager	Degree
R8	Yes	Yes	8 years	Site supervisor	Diploma
R9	Yes	Yes	10 years	Site manager	Diploma
R10	Yes	Yes	7 years	H&S agent	Advanced Diploma
R11	Yes	Yes	8 years	H&S manager	Advanced Diploma

Author’s own creation.

shows that the majority of the respondents had a minimum of five years’ experience working in the construction industry. Respondents had a minimum of diploma qualification. All the respondents knew the baseline risk assessment and were also involved in the implementation of H&S control measures. Notably, only two respondents indicated that they are currently not working on construction sites, while one respondent had less than five years’ experience in the construction industry. The responses from three respondents were not used, since they were either not working on construction sites or had less experience. Only the results from respondents who met the selection requirements are presented in Table 1. It is noted that the respondents have sufficient experience, with no one having less than five years’ experience. The average experience of the respondents is nine years.

4.2. Factors Impeding the Implementation of Health and Safety Control Measures (Barriers)

Table 2. Barriers to the implementation of health and safety control measures.

Barriers	Respondents
	1	2	3	4	5	6	7	8	9	10	11	Frequency	Percentage
Lack of communication	√	√		√						√	√	5	45.0
Resistant to change	√	√	√						√			4	36.0
Lack of management commitment	√	√	√	√	√	√	√	√	√		√	10	90.0
Time pressure	√	√					√			√	√	5	45.0
Language and cultural differences	√		√	√				√	√		√	6	54.0
Implementation costs		√	√		√	√		√	√	√	√	8	72.0
Lack of community cooperation		√										1	9.0
Lack of training and education		√	√			√	√	√		√	√	7	63.0
Compliance issues			√									1	9.0
Lack of consequence management					√							1	9.0
Prioritisation of production over health and safety				√	√		√	√		√		5	45.0
Lack of resources								√				1	9.0
Lack of motivation						√						1	9.0
Lack of worker involvement and participation				√				√	√	√	√	5	45.0

Author’s own creation.

presents the responses of respondents on the barriers to the implementation of H&S control measures in South African construction industry. Various barriers have been revealed by the respondents. The questions that the respondents were asked were “What are barriers (challenges) you have experienced when implementing health and safety control measures?”, “Would you please elaborate more?”, You mentioned a few barriers (challenges), how exactly would that hinder or stop the implementation of H&S control measures?, and please continue’. Based on their responses, further questions were asked to gain more information and to allow respondents to share more experiences. The study revealed eight main barriers (lack of management support and commitment, implementation costs, lack of training and education, language and cultural differences, time pressure, prioritisation of production over H&S issues, lack of worker involvement and participation and lack of communication) to the implementation of H&S control measures. The study used the number of times a barrier was mentioned to determine its significancy. For example, if a barrier was mentioned only once by respondents, it was considered less significant. Furthermore, any impeding factor (barrier) mentioned more than four times was considered significant. Notably, the top four significant barriers were lack of management support and commitment, implementation costs, lack of training and education and language and cultural differences. A recent qualitative study by [44] used similar criteria for identifying constraining factors for the use of private sector finance in delivery of public sector infrastructure in Tanzania. Table 2 shows that a total of 14 impeding factors (barriers) have been identified by the respondents. Barriers were mentioned for a total of 60 times by different respondents. The barriers and frequencies are shown in Table 2.

5. Discussions of the Findings

Eight themes have been generated based on the study findings. The current study uncovered eight main impeding factors (barriers) that need to be addressed to improve the implementation of H&S control measures. These are lack of management support and commitment, implementation cost, lack of training and education, language and cultural differences, time pressure, prioritisation of production over H&S, lack of worker involvement and participation and lack of communication. The eight main themes are discussed separately in the following subsections. Finally, the limitations of the study are outlined.

5.1. Lack of Management Support and Commitment

The majority of the respondents (90%) indicated the most significant barrier was lack of management support and commitment. The results suggest that management is not providing enough support and commitment to the implementation of H&S control measures. According to [46] organising and implementing H&S policies is dependent on top management commitment. Studies such as [7,9,36,46] identify lack of management support and commitment to be a barrier to H&S performance. Management commitment can be demonstrated by appointing H&S officers and establishing committees. However, according to [46] management support and commitment should go beyond that. On the other hand, as stated by [47], usually H&S professionals take all the responsibilities for H&S without any support from other project participants or workers. This is because H&S is perceived to be the responsibility of H&S professionals [27]. “The project management team (supervisor and site foreman) were always against safety toolbox talks stating they waste time. Without the support of the management the discussion of risk assessments is impossible” (R2). Thus, effective implementation of H&S control measures is possible with strong management support and commitment.

• “Without strong support and commitment from upper management, it is difficult to effectively implement and enforce safety measures” (R3).
• “Poor safety culture in the organisation, lead to poor performance of health and safety” (R4).
• “When top management does not show interest in safety or lead by example, it can lead to a lack of employee engagement in health and safety control measures” (R5).
• “If management is not assisting, then no one else will follow any proposed control measures” (R6).
• “Management usually does not show commitment to risk assessment and how to implement controls” (R7).
• “Some managers believe implementing control measures do not necessarily prevent accidents” (R9).
• “Some project managers, engineers and designers usually do not have time to implement effective controls” (R10).
• “Some managers believe implementing control measures is the responsibility of H&S officer” (R11).

5.2. Implementation Costs

Implementation costs were mentioned as being the second most significant barrier (72%). The study findings show that cost can be seen as another cause of poor implementation of H&S control measures. According to [33] costs implementation was one of the barriers to effective H&S compliance. Some construction organisations have a limited budget for the funding of H&S interventions [27]. Inadequate funds for safety are one of the barriers to H&S performance. Similarly, ref. [48] found that lack of funds for H&S was found to be one of the main factors affecting effectiveness of H&S laws and regulations. Thus, lack of funding for H&S control measures hinders the implementation of H&S control measures. One of the respondents remarked that “Limited budgets can hinder the purchase of necessary equipment, training programmes, and safety improvements in the workplace” (R3). Lack of direct financial benefits may discourage some organisations from setting costs aside for implementing H&S measures [10,36]. However, ref. [49] observes that H&S budget should be provided to implement accident prevention strategies. The H&S budget is critical as it enables the implementation of any H&S measures. One of the respondents observes that “Some organisations only invest resources in initiatives that directly contribute to their bottom line, disregarding other activities” (R5). According to [50] investing more in safety contributes to better performance. On the other hand, insufficient resources were identified as one of the challenges for SMS implementation [47]. Ref. [51] found that cost was found to be another barrier to effective H&S management. Cost was also an issue in implementing H&S leading indicators [52]. Despite evidence pointing to the benefits of investing in H&S, some organisations argue that financial benefits are still small. Poor investment in H&S may be caused by the lack of understanding of the financial benefits [20]. This is why some organisations still do not set aside enough financial resources for H&S interventions. Cost is one of the factors affecting the implementation of H&S practices. Finally, the implementation costs can be related to training of workers on H&S control measures, selection, procurement and maintenance of controls.

• “The contractor often underprice the HS items and do not have enough signs for traffic accommodation, with lack of funds the purchasing of traffic accommodation safety measures such signs and flags will not happen” (R2).
• “Most control measures require financial capability, such as installing a steel barrier in rotating equipment to eliminate the risk of amputation or installing a wall to reduce noise exposure” (5). Some employers do not want to spend on implementing safety barriers because it is not budgeted for and will eat into their profits.
• “Cash flow issues affects items to be procured, i.e., promotional items, PPE, barricading nets, etc. That means that there won’t be money to implement safety control measures” (R6).
• “Lack of money to implement control measures” (R11).

5.3. Lack of Training and Education

Lack of training and education was mentioned as being the third most significant barrier (63%). Ref. [34] notes that lack of training is one of the several barriers to H&S performance. In addition to lack of training, ref. [9] found that workers’ low level of education was one of the main impediments to safety improvement. Ref. [53] found that low levels of literacy were one of the major constraints affecting effective H&S management. Another study by [27] reveals that lack of safety knowledge and risk concept understanding were identified as factors hindering SMS implementation in Hong Kong. One respondent indicated that “some workers do not have enough training in implementing controls”(R10). Lack of training or knowledge to implement H&S programme is one of the factors hindering better project performance. Thus, the inability to consider the level of training required may hamper the implementation of H&S controls. However, effective safety training is critical in reducing accidents [54]. Thus, unsafe acts and conditions can be prevented through effective H&S training. It is suggested that workers who receive H&S education and training are in a better position to identify and control hazards. According to [52] H&S induction training can help workers in identifying hazards and control measures. Similarly, lack of education and H&S training may suggest that workers are unable to properly implement H&S control measures. Another respondent remarked that “without a thorough understanding of potential hazards, it is difficult to implement effective control measures to mitigate risks” (R3). In the same manner, according to [47] training is the most effective tool for reducing risks and managing hazards [55]. “If workers don’t get enough awareness training, they might not know about possible dangers or don’t have the skills they need to do their jobs safely” (R2). Finally, lack of training and education remains a critical factor for better implementation of H&S control measures.

• “Irrelevant information will mislead employees, and they will implement wrong control measures that will lead to accidents/incidents” (R4).
• “Incompetency of people on the ground affects implementation of safety control measures” (R6).
• “Some workers are unable to read the controls identified and does prevents them from implementing” (R7).

5.4. Language and Cultural Differences

Language and cultural differences were mentioned as being the fourth most significant barrier (54%). Ref. [27] found cultural differences to be a challenge for implementing SMS in Hong Kong. Communication issues and differences in language, religion and culture are likely to affect workplace safety [55]. Thus, workers from different cultures express themselves in different ways. Language and diverse culture were identified as one of the main barriers to effective H&S implementation [33]. It is noted that examining language and cultural differences is fundamental for the failure or success of H&S controls implementation. Ref. [33] indicates that workers struggle to understand the terms such as risk and hazard used during toolbox talks. For instance, one respondent argues that “Control measures are sometimes difficult to implement because they are communicated and written in only English” (R11). This is common to many construction sites where English is often used to convey critical H&S information. As reported by [56] language barriers affected migrant workers learning and training effectiveness. Another respondent notes that “illiteracy and some workers do not have enough knowledge about risk assessment and controls” (R8).

On the other hand, migrant workers’ background and cultural differences were contributors to H&S rules violation [56]. Finally, issues around language and culture should be considered for successful H&S control measures implementation.

• “Language barriers and cultural differences impede effective communication and understanding of safety information” (R1).
• “In multicultural workplaces, language and cultural differences can pose challenges when communicating safety procedures and expectations” (R3).
• “Employees do not understand the language that is used for communication example English” (R4).
• “On our site we use English most of the times, but have more than five different languages spoken by workers and this makes it difficult to understand each other” (R9).

Hazard identification and risk assessment and control involve the workers, supervisor, site manager, safety professionals and other specialists. This study included site supervisors, site managers and safety professionals who usually work together with workers to implement control measures. This interaction allowed them to understand challenges that are faced by workers when implementing control measures. For example, a worker may struggle to read or interpret messages written on noticeboard or notices placed around the construction sites because of the language used. That is how the responses of participants could be interpreted. Hence, site supervisors, managers and safety professionals may have similar challenges when communicating control measures to workers given the many languages used on South African construction sites.

5.5. Time Pressures

Time pressure was mentioned as one of the barriers ranked fifth in significance (45%). This has been the case in other studies such as [47] which identify tight project deadlines as one of the barriers to effective H&S management. A tight project schedule was identified as one of the five main obstacles for SMS implementation [47]. Two respondents note that “Tight project schedules can affect implementation of H&S control measures” (R7 and R11). Poor planning and inclement weather could be one of the causes of time pressures [9]. Tight working schedule was one of the key challenges to effective SMS implementation [47]. Similarly, time pressures have been identified as one of the factors preventing better implementation of H&S practices by contractors [53]. Hence, workers can be forced to work faster and work excessive hours. One of the respondents contends that “clients want us to finish the work quickly because of tight project targets” (R9). Time pressure has been identified as a critical barrier to implementing H&S control measures. As indicated by [27] it can be the contributor to construction accidents. This is because time project schedule adds pressure and stress on management and workers [27]. Ref. [49] states that due to time pressure, workers are encouraged to take shortcuts to finish the job quickly. Another respondent points out that “Pressure to meet tight deadlines may lead to shortcuts being taken with safety protocols or procedures” (R1). Study findings suggest time pressure is likely to affect the implementation of H&S control measures.

5.6. Prioritisation of Production over Health and Safety

Prioritisation of production over H&S issues was mentioned as one of the barriers ranked fifth in significance (45%). Lack of H&S prioritisation is not only a barrier to the implementation of H&S control measures, but a study by [48] found that lack of priority for H&S was found to be one of the factors affecting effectiveness of H&S laws and regulations. Similarly, a study by [36] found that prioritisation of production over safety was one of the barriers in the implementation of safety interventions for tacking occupational ill health. Managers focus more on productivity, time and saving money than on H&S [47]. One of the respondents remarks that “Some site managers and supervisors do not care about H&S and just push production” (R10). The literature shows that productivity remains a top priority, while H&S issues take back seat. According to [57] the financial benefits of investing in H&S are usually long term, which is less attractive to small organisations. The findings further point that there is a low safety priority within the construction industry. According to [27] poor safety culture is attributed to low safety priority. This happens because H&S issues continue to be disregarded as one of the main project objectives [4]. Thus, poor implementation of H&S control measures may be because of lack of prioritisation of H&S objectives.

• “Workers may prioritise speed over safety, leading to increased risks of accidents and injuries” (R1).
• “Focusing on production and showing negative attitude towards safety” (R7).
• “Disrespecting health and safety” (R8).
• “Many managers believe implementing control measures costs a lot of money, do not want to provide budget for hazard identification and risk assessment” (R8).

5.7. Lack of Worker Involvement and Participation

Lack of worker involvement and participation was mentioned as one of the barriers ranked fifth in significance (45%). Ref. [49] points out that workers should be involved in identifying hazards and controls. Similarly, ref. [27] notes that worker involvement and participation is critical for hazard identification and control. Management commitment and worker participation are critical in H&S management system implementation [48]. To demonstrate the significance of worker involvement and participation, a study by [27] found worker involvement to be one of the safety critical success factors to overall project success. For example, one of the respondents remarks that “They do not seek our inputs, we just seeing control measures written on papers. For example, are given safety gloves which are not suited for the task” (R8). According to [58] worker involvement and empowerment remains a critical factor for improving H&S performance. Thus, it is important for workers to participate in H&S such as hazard control implementation. Without worker participation and involvement, implementing H&S measures becomes difficult [4].

• “Employees don’t understand the importance of information that is offered to them, they take it for granted, as they are not involved and don’t focus during awareness session” (R4).
• “Sometimes is difficult to have different workers involved in risk assessment and control measures” (R9).
• “Worker inputs is not really welcome and H&S department implement control measures” (R10).
• “Workers are not aware and involved in selecting control measures required” (R11).

5.8. Lack of Communication

Lack of communication was mentioned as one of the barriers ranked fifth in significance (45%). Communication was found to be one of the five critical H&S elements [58]. Ref. [48] notes that poor communication between managers and workers on construction sites can lead to accidents and delays. Similarly, ref. [59] indicates that effectively communicating safety hazards and control measures reduces the probability of accidents. Several other studies have highlighted that communication is a key issue when managing H&S. This implies that effective communication, which considers every worker on site, is required. According to [60] both formal and informal or written and oral communication should be provided to all workers. Communication is not only critical for collaboration [7], but also necessary for hazard control implementation. Communication can help to improve awareness and the implementation of H&S interventions [4]. One of the respondents states that “poor implementation of H&S control measures may be caused by lack of communication. “Miscommunication or lack of communication between different stakeholders can lead to misunderstandings about. This may result in workers not receiving critical safety information or failing to adhere to safety protocols due to confusion or misinformation” (R1). On the other hand, ref. [60] indicates that the differences between low and high rate of accidents was affected by safety communication between managers and workers. Thus, lack of communication exposes workers to safety risks and accidents.

• “If managers and workers don’t communicate to each other well about health and safety problems, it can lead to confusion and weaken the safety culture” (R2).
• “If employees don’t understand the importance of safety, they won’t implement what has been taught during awareness session” (R4).
• “Task risk assessment including control measures are only discussed once and no further communication is made” (R10).
• “Difficulty in communicating control measures to all involved” (R11).

5.9. Limitations of the Study

The interview form was used to uncover factors impeding the implementation of H&S control measures (barriers). Qualitative approach stresses the experiences of participants over that of the researcher, but it can also be limited by the kind of participants that take part. However, according [61] qualitative study relies on quality not quantity. The interview included the questions that could identify only participants who had relevant knowledge and experience in the subject matter to take part. While the findings cannot be generalised, further studies could use other methods to expand or validate the barriers identified based on the completed interview forms. Respondents were mainly from H&S background; it would be interesting to explore the perceptions of site managers, engineers, designers, supervisors and work face workers using a quantitative approach involving a larger sample. Additionally, similar studies can be undertaken in other countries to compare the barriers identified in those countries to the findings of this study. The study is limited to qualitative research, and future studies such as quantitative or mixed method may use the findings of the current study to assess their impact. Literature review was used to provide background to the study and no attempt was made to conduct a systematic literature review. Hence, only limited and general information is provided. The study does not attempt to explore the barriers related to the implementation of hierarchy of hazard controls theory. Other studies may investigate the barriers associated with implementing hierarchy of hazard control theory. However, it could be argued that the impeding factors (barriers) such as implementation costs, lack of management support and commitment, lack of worker involvement and participation, time pressures and prioritisation of production over safety may lead to the adoption of more behavioural controls than technological controls. Although internal and external factors can impede the implementation of H&S control measures, the findings were more about internal factors. Hence, future studies can exclusively identify external factors that can impede the implementation of H&S control measures.

6. Conclusions and Recommendations

Hazard controls are introduced to eliminate and manage hazardous activities and reduce the likelihood of injuries and accidents. Despite the progress made to control hazards, construction industry still faces several barriers relating to their implementation. With the number of studies on HIRAC, the research interest on specific H&S control measures is still at low levels. The current study uncovered the main barriers affecting the implementation of H&S control measures in the South African Construction Industry. The identified barriers are critical in the quest for zero accidents and imperative for advancing knowledge in hazard control theory and practice. Additionally, construction organisations can use the identified barriers as a starting point for better implementation of H&S controls. This emphasises the importance of control in the HIRAC process. Furthermore, addressing these barriers is important for improving overall H&S performance within the construction industry. Based on the findings, the study highlights key barriers relating to the implementation of H&S control measures. These barriers (impeding factors) hinder the implementation of H&S control measures. By identifying and understanding these barriers, the construction organisations could be in a better position to control construction hazards. Subsequently, this could lead to better management of hazards on construction sites. It can be argued that poor implementation of H&S measures can lead to accidents which have an impact on project progress. The identification of these factors adds to the hazard control theory and provides practical ways in which the implementation of H&S control measures can be improved. Not knowing the barriers affecting the implementation of control hazards has the potential to hamper the H&S interventions and efforts undertaken by the government authorities, professional bodies and organisations. Future studies could use the identified factors to either remove the obstacles or implement the critical factors for better implementation.

Based on the study findings, the following recommendations should be considered to improve the implementation of H&S control measures: These recommendations could be grouped into three levels; project and training and policy.

Project level recommendations that can be considered are as follows:

• H&S issues should be given the same status as production issues.
• The cost of implementing H&S control measures should be considered when planning a new project or activity.
• A sufficient budget should be set aside for H&S, and monitoring of this budget should be undertaken.
• Top management should provide necessary resources and support for the implementation of H&S controls.
• Organisations should involve all workers in HIRAC to ensure better H&S performance and improve any form of communication to facilitate workers’ understanding.
• Organisations should develop creative and innovative ways to remove or minimise the identified barriers. Failure to remove them can lead to workers being exposed to hazards and the occurrence of accidents.
• The use of interpreters or translations should be prioritised.

Training level recommendations that can be considered are the following:

• A basic literacy training should be provided to improve workers ability to write and read H&S control measures. This will help workers to meaningfully participate in HIRAC.
• Training on HIRAC should be given to management and workers. Multiple languages or language switching should be used to increase workers’ understanding and participation.
• Symbols or pictures could be used to improve workers’ knowledge and understanding.

Policy level recommendations that can be considered are the following:

• Government authorities, professional bodies and construction organisations should use the findings of this study in the review of applicable regulations and standards related to H&S hazard controls.
• Universities may use the findings to review their curriculum to address any shortcomings.